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TABLE OF CONTENTS
Page
I Project Summary and Recommendation
A Recommendation 1 B Description of Project 1- 2 C Summary Findings 2 D Project Issues 3
II Project Background and Detailed Description
A Background 1 - 6 B Detailed Description 7 C Logical Framework Matrix 8
III Project Analysis
A Technical Analysis 9 -11 B Financial Analysis and Plan 12 -13 C Social Analysis 14 -16 D Economic Analysis 16 -17
IV Implementation Arrangements
A Recipients and AIDs Administrative Arrangements 18 -25
B Implementation Plan 26 -34 C Evaluation Plan 34 -35 D Negotiating Status 35
ANNEXES
A AIDW PID Approval Message 36 B Project Technical Details 37 -48 C Project Performance Tracking System Network
and Cronogram of Activities 49 -57 D Grantees Request for Assistance
(Letter from Ministry of Finance) 58 E Commodity List 59 F Draft of Project Description for
Project Agreement 60 -62
[ PROJECT SUMMARY AND RECOMMENDATION
A Recommendation
Grant (new AID obligation) - $375000
B Description of Project
(1) Project Components
AID
7 man-years of technical assistance long and short term in project analysis
preparation and project management training
GOJ
a) Salaries for increased staff four
professionals for Project Development Research Team
b) Administrative support
(2) Implementation
The project will be implemented by the
Investment Planning and Projects Division(IPPD) of the
Ministry of Finance in coordination with the Ministries
of Agriculture Education Public Service Health and Environmental Control National Water Authority and
possibly one or two others These latter entities will
provide the appropriate sector specialists to form
Project Development Working Teams within each ministry
The composition of these Working Teams will be determined
by the nature of the subsector activity which will be
projectized The IPPD will form a Project Development
Resource Team(PRDT) from its own members to train and
consult with the various Ministry Work Groups External
assistance to this PDRT is designed to impart the skills
and methods to make them a self-sustaining nucleus in
meeting GOJ needs
- 2 shy
(3) Purpose The purpose of the project is to Establish a GOJ capability on project design and manageshyment which will
a) increase the number of Jamaican development projects available for financinq by foreiqn and domestic sources and
b) improve the project implementation process and consequently reduce projects completion time
(4) End of Project Status A Jamaican capability to fully design projects will exist as well as an experienced consultative team the Project Development Resource Team More than 40 projects will have been designed in the period 1977 - 1980 (33 during years 1977-79) It is expected that the PDRTWorking Teams will desiqn and deshyvelop approximately ten projects per year Additionally the project expenditure rate will have been increased by 40 during 1977-1980 over the base period 1973-1976
(5) Summary Findings That a lack of project design and implementation capability exists throughout the majorshyity of government ministries in Jamaica which inhibits the presentation of projects for which external donor financing could be attracted
Reliance on project preparation in the past has by default fallen on external donor resources or through GOJshyfinanced project design consultdnts The consequence of this dependence on foreign experts has resulted in a lack of identification with the project by the implementators as they were not involved in its development not to mention the financial drain which results from payment being made to expatriate consultants Key determinants in explaining the extensive pipeline in many projects developed in the past have been (a) the division of roles between project design (essentially expatriate) and project implementation (locals) and (b) the need for better management of projects
That based on experience gained in other LDCs that a project design and implementation capability can be deshyveloped in Jamaica through a combination of brief but inshytensive formal training and on-the-project extensive instrucshytion supplemented initially by resident experts and by short-term consultants to assist in resolving especially difficult design problems with which the newly trained Jamaicans cannot cope
- 3shy
(6) Project Issues
No issues were raised during the PID review in AIDWashington and none of any significance emerged during the projects development to the PP stage The only major issue foreseen is the life-of-project funding for the project
Issue Backqround The PID for this project was submitted to AIDW on 12175 and reflected a Life-of-Project (L-0-P) cost of $475000 USAIDJs Grant Activity Data sheet for the FY77 Congressional Presentation(CP) submitted to AIDW on 1976 similarly stated a L-O-P Cost of $475000 Subsequent to these project data inputs AIDW prepared the finaldata sheets for the FY77 CP and reduced the L-O-P funding to $375000 The PID approval cable -- Annex A shy
quote suggests the PP not exceed the $375000 level proposed in CP
Discussion The project was designed to include an AID input of $475000 in order to achieve the outputs objectives of the project While the Project Design Team feels outputsobjectives can be achieved with the lesser amount of funding by elimination of Participant Training and reduction of the manmonths of short-term advisorsthe full amount could conceivably make the diffshyerence between the GOJ preparing a total of at least 33 projects during the 1977 - 79 period or falling several projects short of this objective
USAIDJ is not aware of the reason(s) why the PID and its FY77 CP figure of $475000 was reduced by $100000 other than perhapsthe usual funding program constraints of anticipated availability of Congressional appropriations for this Category (EampHR) of assistance USAIDJ strongly urges that the full funding reflected in the PP be provided and that the appropriate Congressional notification be made This proposed project is essentially directed toward establishing governmental capability in project design and improvement of management during the implementation phase these objectives the AID Work Group on Management Improvement and Development Administration identified as being an essential and all too often missing ingredient of development efforts Full funding of this project will contribute significantly to strengthening the management capabilities in project design and implementation of the GOJ
-4-
II PROJECT BACKGROUND AND DETAILED DESCRIPTION
A Background
Jamaica not unlike most developing nations suffers from a lack of administrative and management skills in the middle echelon of government It is fortunate in having a small and effective cadre of bright and vigorous planners and administrators at the higher levels but the system is afflicted with a glaring void in the middle management level which considerably vitiates the energies and efforts of those at the top The classical management syndrome is evident in such an environment with the competent few dissipating their planning and managemen efforts in coping with day-toshyday operational details rather than devoting their creative energies to substantive policy and planning matters which directly bear on the countrys economic and social development
While the lack of middle management capability pervades practically all sectors of government its effect in a deleterious sense is particularly acute in the planning and project devcopment phases of the system given the countrys present economic situation
Jamaicas economy over the past several years has been heavily dependent on the inflow of development capital both in the public and private sector This capital inflow will be required at least for the next three to four years to offset a projected Current Account deficit in the range of US $200 million per year (at currant prices) during this period Jamaicas ability to mobilize external capital inflows of this magnitude will be largely predicted on a greatly improved capacity to prepare projects in a form sufficiently attractive to external lenders
Corollary to this need for external capital financing is the necessity to create employment opportunities and reduce the unemployment rate estimated at 21 in 1975 through domestically financed projects using the Governshyments Capital Development Fund(CDF) Projects must be
- 5 shy
identified to utilize unemployment workers in the creation of productive assets The present method of project preparation in the public sector is ill-suited for preparashytion of employment-creation oriented projects which tend to be more complicated than most Projects presently are usually prepared on a small scale in segments by individual agencies and ministries and are normally not coordinated with each other
The World Bank pointed out in a recent assessment that the present lead time to develop a project averages two years an inordinate amount of time considering Jamaicas need to attract concessionary capital inflows to offset an economically debilitating projected current account resource gap in the near term and the necessity to reduce the relatively high and politically volatile unemployment rate
The IDB has along with the World Bank recognized this project development deficiency and join AID in providing complementary resources in redressing the situation The IDB will provide two experts to develop a system for project development and their input will be closely coordinated with AIDs through the Permanent
Secretary of the IPPD
As Jamaicas need for concessionary loans is increasing
and the availability of such loans is dependent upon the availability of complex and large scale projects a capability to plan such projects within the public sector is a n-cessity which this project will address
Past attempts on the governments part to remedy this project preparation shortcoming have served more as palliatives rather than as cures for this deficiency These attempts have mainly focussed on employing foreign expatriates to prepare projects Wh]ile this method is costly not only in terms of financial outlays but in producing the development of a Jamaican capability in project design through perpetuation of the Crutch mentality Further the use of expatriate experts to design projects and the use of Jamaicans to implement
- 6 shy
them creates a difficulty in the latter group in not fully identifying with the undertakings which freshyquently augers ill for attainment of objectives
This project will direct its initial focus on developing Jamaican capabilities from the outset by establishing a Jamaican Project Development Resource Team of four persons in the IPPD with expertise in disciplines and sectors which are expected to receive the bulk of external and domestic capital funding over the next few years The members of this Team will receive intensive training in project design and impleshymentation and gather experience as instructors and advisors to the Ministry Work Groups This Team will then help organize Project Work Groups in ministries and assist them through training and advice in preparing individual ministrs projects
The ministries Project Work Groups should have one or more members who will subsequently be involved in the projects implementation This methodology of project design has the obvious advantage of melding the project development and project implempntation through personnel continuity thus eschewing the situation of having one group design a project and a second implementing it This appruach to the project deviates somewhat from the projects scenario presented in the PID In the former document a more gradual attainment of project development capability with a heavy dependence on the expatriate United States project advisors input was envisaged The present approach stresses the use of Jamaican resources at the outset ie the Working Group as the primary medium to develop project management capability with the role of the expatriate advisor still vital but diminished relative to the conceptualization presented in the PID
The GOJ fully agrees with this approach as it maximizes the role of Jamaicans in the project and considerably increases the number of ministries personshynel who are expected to be proficient in project manageshyment at the conclusion of the project
- 7-
B Detailed Description (Logical Framework)
1 Goal This project is based on a relativelysimple ends-means chain The Goal of the GOJ is to increase the utilization from the capital inflow from abroad and from domestic sources for its development objectives It wishes to increase the flow from instishytutional lenders such as the IDB the Canadian Intershynational Development Agency the European Economic Communshyity the World Bank etc This increased flow is possiblegiven the usual assumptions availability of loan funds on the part of the lenders projects of interest to the lenders and Jamaican political and economic conditions suitable for such loans
2 Purpose In order to increase the utilization of development capital the GOJ must improve its capabilshyity to plan and manage development projects
3 Outputs To accomplish the Purpose the GOJ proposes to do the following
i) Strengthen the Ministry of Finance (theInvestment Programming and Projects Division) to perform a leadership and facilitative role with respect to the line ministries where projects are planned and administered
ii) Identify projects it wishes developed and helporganize and train the ministries staff in Work Groups to plan and implement these projects on an accelerated basis
iii) Develop the necessary procedures and methods for this process including a Training Manual
4 Inputs The GOJ will establish a Project Developshyment Resource Team (PDRT) in the IPPD assisted by two US long-term specialists and 42 man-months short-term conshysultants on project preparation and implementation The GOJ will also supply the Work Groups and the logistic support required by the Project
The specific tragets means of verification and assumptions are shown on the Logical Framework Matrix
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III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
- 10 shy
in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
- 12 -
B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
- 13 -
Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
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C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
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the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
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$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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Figure 1 - Relationship of Guidance and
Experience in Projects
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
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0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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TABLE OF CONTENTS
Page
I Project Summary and Recommendation
A Recommendation 1 B Description of Project 1- 2 C Summary Findings 2 D Project Issues 3
II Project Background and Detailed Description
A Background 1 - 6 B Detailed Description 7 C Logical Framework Matrix 8
III Project Analysis
A Technical Analysis 9 -11 B Financial Analysis and Plan 12 -13 C Social Analysis 14 -16 D Economic Analysis 16 -17
IV Implementation Arrangements
A Recipients and AIDs Administrative Arrangements 18 -25
B Implementation Plan 26 -34 C Evaluation Plan 34 -35 D Negotiating Status 35
ANNEXES
A AIDW PID Approval Message 36 B Project Technical Details 37 -48 C Project Performance Tracking System Network
and Cronogram of Activities 49 -57 D Grantees Request for Assistance
(Letter from Ministry of Finance) 58 E Commodity List 59 F Draft of Project Description for
Project Agreement 60 -62
[ PROJECT SUMMARY AND RECOMMENDATION
A Recommendation
Grant (new AID obligation) - $375000
B Description of Project
(1) Project Components
AID
7 man-years of technical assistance long and short term in project analysis
preparation and project management training
GOJ
a) Salaries for increased staff four
professionals for Project Development Research Team
b) Administrative support
(2) Implementation
The project will be implemented by the
Investment Planning and Projects Division(IPPD) of the
Ministry of Finance in coordination with the Ministries
of Agriculture Education Public Service Health and Environmental Control National Water Authority and
possibly one or two others These latter entities will
provide the appropriate sector specialists to form
Project Development Working Teams within each ministry
The composition of these Working Teams will be determined
by the nature of the subsector activity which will be
projectized The IPPD will form a Project Development
Resource Team(PRDT) from its own members to train and
consult with the various Ministry Work Groups External
assistance to this PDRT is designed to impart the skills
and methods to make them a self-sustaining nucleus in
meeting GOJ needs
- 2 shy
(3) Purpose The purpose of the project is to Establish a GOJ capability on project design and manageshyment which will
a) increase the number of Jamaican development projects available for financinq by foreiqn and domestic sources and
b) improve the project implementation process and consequently reduce projects completion time
(4) End of Project Status A Jamaican capability to fully design projects will exist as well as an experienced consultative team the Project Development Resource Team More than 40 projects will have been designed in the period 1977 - 1980 (33 during years 1977-79) It is expected that the PDRTWorking Teams will desiqn and deshyvelop approximately ten projects per year Additionally the project expenditure rate will have been increased by 40 during 1977-1980 over the base period 1973-1976
(5) Summary Findings That a lack of project design and implementation capability exists throughout the majorshyity of government ministries in Jamaica which inhibits the presentation of projects for which external donor financing could be attracted
Reliance on project preparation in the past has by default fallen on external donor resources or through GOJshyfinanced project design consultdnts The consequence of this dependence on foreign experts has resulted in a lack of identification with the project by the implementators as they were not involved in its development not to mention the financial drain which results from payment being made to expatriate consultants Key determinants in explaining the extensive pipeline in many projects developed in the past have been (a) the division of roles between project design (essentially expatriate) and project implementation (locals) and (b) the need for better management of projects
That based on experience gained in other LDCs that a project design and implementation capability can be deshyveloped in Jamaica through a combination of brief but inshytensive formal training and on-the-project extensive instrucshytion supplemented initially by resident experts and by short-term consultants to assist in resolving especially difficult design problems with which the newly trained Jamaicans cannot cope
- 3shy
(6) Project Issues
No issues were raised during the PID review in AIDWashington and none of any significance emerged during the projects development to the PP stage The only major issue foreseen is the life-of-project funding for the project
Issue Backqround The PID for this project was submitted to AIDW on 12175 and reflected a Life-of-Project (L-0-P) cost of $475000 USAIDJs Grant Activity Data sheet for the FY77 Congressional Presentation(CP) submitted to AIDW on 1976 similarly stated a L-O-P Cost of $475000 Subsequent to these project data inputs AIDW prepared the finaldata sheets for the FY77 CP and reduced the L-O-P funding to $375000 The PID approval cable -- Annex A shy
quote suggests the PP not exceed the $375000 level proposed in CP
Discussion The project was designed to include an AID input of $475000 in order to achieve the outputs objectives of the project While the Project Design Team feels outputsobjectives can be achieved with the lesser amount of funding by elimination of Participant Training and reduction of the manmonths of short-term advisorsthe full amount could conceivably make the diffshyerence between the GOJ preparing a total of at least 33 projects during the 1977 - 79 period or falling several projects short of this objective
USAIDJ is not aware of the reason(s) why the PID and its FY77 CP figure of $475000 was reduced by $100000 other than perhapsthe usual funding program constraints of anticipated availability of Congressional appropriations for this Category (EampHR) of assistance USAIDJ strongly urges that the full funding reflected in the PP be provided and that the appropriate Congressional notification be made This proposed project is essentially directed toward establishing governmental capability in project design and improvement of management during the implementation phase these objectives the AID Work Group on Management Improvement and Development Administration identified as being an essential and all too often missing ingredient of development efforts Full funding of this project will contribute significantly to strengthening the management capabilities in project design and implementation of the GOJ
-4-
II PROJECT BACKGROUND AND DETAILED DESCRIPTION
A Background
Jamaica not unlike most developing nations suffers from a lack of administrative and management skills in the middle echelon of government It is fortunate in having a small and effective cadre of bright and vigorous planners and administrators at the higher levels but the system is afflicted with a glaring void in the middle management level which considerably vitiates the energies and efforts of those at the top The classical management syndrome is evident in such an environment with the competent few dissipating their planning and managemen efforts in coping with day-toshyday operational details rather than devoting their creative energies to substantive policy and planning matters which directly bear on the countrys economic and social development
While the lack of middle management capability pervades practically all sectors of government its effect in a deleterious sense is particularly acute in the planning and project devcopment phases of the system given the countrys present economic situation
Jamaicas economy over the past several years has been heavily dependent on the inflow of development capital both in the public and private sector This capital inflow will be required at least for the next three to four years to offset a projected Current Account deficit in the range of US $200 million per year (at currant prices) during this period Jamaicas ability to mobilize external capital inflows of this magnitude will be largely predicted on a greatly improved capacity to prepare projects in a form sufficiently attractive to external lenders
Corollary to this need for external capital financing is the necessity to create employment opportunities and reduce the unemployment rate estimated at 21 in 1975 through domestically financed projects using the Governshyments Capital Development Fund(CDF) Projects must be
- 5 shy
identified to utilize unemployment workers in the creation of productive assets The present method of project preparation in the public sector is ill-suited for preparashytion of employment-creation oriented projects which tend to be more complicated than most Projects presently are usually prepared on a small scale in segments by individual agencies and ministries and are normally not coordinated with each other
The World Bank pointed out in a recent assessment that the present lead time to develop a project averages two years an inordinate amount of time considering Jamaicas need to attract concessionary capital inflows to offset an economically debilitating projected current account resource gap in the near term and the necessity to reduce the relatively high and politically volatile unemployment rate
The IDB has along with the World Bank recognized this project development deficiency and join AID in providing complementary resources in redressing the situation The IDB will provide two experts to develop a system for project development and their input will be closely coordinated with AIDs through the Permanent
Secretary of the IPPD
As Jamaicas need for concessionary loans is increasing
and the availability of such loans is dependent upon the availability of complex and large scale projects a capability to plan such projects within the public sector is a n-cessity which this project will address
Past attempts on the governments part to remedy this project preparation shortcoming have served more as palliatives rather than as cures for this deficiency These attempts have mainly focussed on employing foreign expatriates to prepare projects Wh]ile this method is costly not only in terms of financial outlays but in producing the development of a Jamaican capability in project design through perpetuation of the Crutch mentality Further the use of expatriate experts to design projects and the use of Jamaicans to implement
- 6 shy
them creates a difficulty in the latter group in not fully identifying with the undertakings which freshyquently augers ill for attainment of objectives
This project will direct its initial focus on developing Jamaican capabilities from the outset by establishing a Jamaican Project Development Resource Team of four persons in the IPPD with expertise in disciplines and sectors which are expected to receive the bulk of external and domestic capital funding over the next few years The members of this Team will receive intensive training in project design and impleshymentation and gather experience as instructors and advisors to the Ministry Work Groups This Team will then help organize Project Work Groups in ministries and assist them through training and advice in preparing individual ministrs projects
The ministries Project Work Groups should have one or more members who will subsequently be involved in the projects implementation This methodology of project design has the obvious advantage of melding the project development and project implempntation through personnel continuity thus eschewing the situation of having one group design a project and a second implementing it This appruach to the project deviates somewhat from the projects scenario presented in the PID In the former document a more gradual attainment of project development capability with a heavy dependence on the expatriate United States project advisors input was envisaged The present approach stresses the use of Jamaican resources at the outset ie the Working Group as the primary medium to develop project management capability with the role of the expatriate advisor still vital but diminished relative to the conceptualization presented in the PID
The GOJ fully agrees with this approach as it maximizes the role of Jamaicans in the project and considerably increases the number of ministries personshynel who are expected to be proficient in project manageshyment at the conclusion of the project
- 7-
B Detailed Description (Logical Framework)
1 Goal This project is based on a relativelysimple ends-means chain The Goal of the GOJ is to increase the utilization from the capital inflow from abroad and from domestic sources for its development objectives It wishes to increase the flow from instishytutional lenders such as the IDB the Canadian Intershynational Development Agency the European Economic Communshyity the World Bank etc This increased flow is possiblegiven the usual assumptions availability of loan funds on the part of the lenders projects of interest to the lenders and Jamaican political and economic conditions suitable for such loans
2 Purpose In order to increase the utilization of development capital the GOJ must improve its capabilshyity to plan and manage development projects
3 Outputs To accomplish the Purpose the GOJ proposes to do the following
i) Strengthen the Ministry of Finance (theInvestment Programming and Projects Division) to perform a leadership and facilitative role with respect to the line ministries where projects are planned and administered
ii) Identify projects it wishes developed and helporganize and train the ministries staff in Work Groups to plan and implement these projects on an accelerated basis
iii) Develop the necessary procedures and methods for this process including a Training Manual
4 Inputs The GOJ will establish a Project Developshyment Resource Team (PDRT) in the IPPD assisted by two US long-term specialists and 42 man-months short-term conshysultants on project preparation and implementation The GOJ will also supply the Work Groups and the logistic support required by the Project
The specific tragets means of verification and assumptions are shown on the Logical Framework Matrix
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- 9-
III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
- 10 shy
in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
- 12 -
B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
- 13 -
Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
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C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
- 15 -
T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
- 16 shy
the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
- 17 shy
$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
- 19 -
Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
- 20 shy
Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
- 21 shy
- 22 shy
4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
TABLE OF CONTENTS
Page
I Project Summary and Recommendation
A Recommendation 1 B Description of Project 1- 2 C Summary Findings 2 D Project Issues 3
II Project Background and Detailed Description
A Background 1 - 6 B Detailed Description 7 C Logical Framework Matrix 8
III Project Analysis
A Technical Analysis 9 -11 B Financial Analysis and Plan 12 -13 C Social Analysis 14 -16 D Economic Analysis 16 -17
IV Implementation Arrangements
A Recipients and AIDs Administrative Arrangements 18 -25
B Implementation Plan 26 -34 C Evaluation Plan 34 -35 D Negotiating Status 35
ANNEXES
A AIDW PID Approval Message 36 B Project Technical Details 37 -48 C Project Performance Tracking System Network
and Cronogram of Activities 49 -57 D Grantees Request for Assistance
(Letter from Ministry of Finance) 58 E Commodity List 59 F Draft of Project Description for
Project Agreement 60 -62
[ PROJECT SUMMARY AND RECOMMENDATION
A Recommendation
Grant (new AID obligation) - $375000
B Description of Project
(1) Project Components
AID
7 man-years of technical assistance long and short term in project analysis
preparation and project management training
GOJ
a) Salaries for increased staff four
professionals for Project Development Research Team
b) Administrative support
(2) Implementation
The project will be implemented by the
Investment Planning and Projects Division(IPPD) of the
Ministry of Finance in coordination with the Ministries
of Agriculture Education Public Service Health and Environmental Control National Water Authority and
possibly one or two others These latter entities will
provide the appropriate sector specialists to form
Project Development Working Teams within each ministry
The composition of these Working Teams will be determined
by the nature of the subsector activity which will be
projectized The IPPD will form a Project Development
Resource Team(PRDT) from its own members to train and
consult with the various Ministry Work Groups External
assistance to this PDRT is designed to impart the skills
and methods to make them a self-sustaining nucleus in
meeting GOJ needs
- 2 shy
(3) Purpose The purpose of the project is to Establish a GOJ capability on project design and manageshyment which will
a) increase the number of Jamaican development projects available for financinq by foreiqn and domestic sources and
b) improve the project implementation process and consequently reduce projects completion time
(4) End of Project Status A Jamaican capability to fully design projects will exist as well as an experienced consultative team the Project Development Resource Team More than 40 projects will have been designed in the period 1977 - 1980 (33 during years 1977-79) It is expected that the PDRTWorking Teams will desiqn and deshyvelop approximately ten projects per year Additionally the project expenditure rate will have been increased by 40 during 1977-1980 over the base period 1973-1976
(5) Summary Findings That a lack of project design and implementation capability exists throughout the majorshyity of government ministries in Jamaica which inhibits the presentation of projects for which external donor financing could be attracted
Reliance on project preparation in the past has by default fallen on external donor resources or through GOJshyfinanced project design consultdnts The consequence of this dependence on foreign experts has resulted in a lack of identification with the project by the implementators as they were not involved in its development not to mention the financial drain which results from payment being made to expatriate consultants Key determinants in explaining the extensive pipeline in many projects developed in the past have been (a) the division of roles between project design (essentially expatriate) and project implementation (locals) and (b) the need for better management of projects
That based on experience gained in other LDCs that a project design and implementation capability can be deshyveloped in Jamaica through a combination of brief but inshytensive formal training and on-the-project extensive instrucshytion supplemented initially by resident experts and by short-term consultants to assist in resolving especially difficult design problems with which the newly trained Jamaicans cannot cope
- 3shy
(6) Project Issues
No issues were raised during the PID review in AIDWashington and none of any significance emerged during the projects development to the PP stage The only major issue foreseen is the life-of-project funding for the project
Issue Backqround The PID for this project was submitted to AIDW on 12175 and reflected a Life-of-Project (L-0-P) cost of $475000 USAIDJs Grant Activity Data sheet for the FY77 Congressional Presentation(CP) submitted to AIDW on 1976 similarly stated a L-O-P Cost of $475000 Subsequent to these project data inputs AIDW prepared the finaldata sheets for the FY77 CP and reduced the L-O-P funding to $375000 The PID approval cable -- Annex A shy
quote suggests the PP not exceed the $375000 level proposed in CP
Discussion The project was designed to include an AID input of $475000 in order to achieve the outputs objectives of the project While the Project Design Team feels outputsobjectives can be achieved with the lesser amount of funding by elimination of Participant Training and reduction of the manmonths of short-term advisorsthe full amount could conceivably make the diffshyerence between the GOJ preparing a total of at least 33 projects during the 1977 - 79 period or falling several projects short of this objective
USAIDJ is not aware of the reason(s) why the PID and its FY77 CP figure of $475000 was reduced by $100000 other than perhapsthe usual funding program constraints of anticipated availability of Congressional appropriations for this Category (EampHR) of assistance USAIDJ strongly urges that the full funding reflected in the PP be provided and that the appropriate Congressional notification be made This proposed project is essentially directed toward establishing governmental capability in project design and improvement of management during the implementation phase these objectives the AID Work Group on Management Improvement and Development Administration identified as being an essential and all too often missing ingredient of development efforts Full funding of this project will contribute significantly to strengthening the management capabilities in project design and implementation of the GOJ
-4-
II PROJECT BACKGROUND AND DETAILED DESCRIPTION
A Background
Jamaica not unlike most developing nations suffers from a lack of administrative and management skills in the middle echelon of government It is fortunate in having a small and effective cadre of bright and vigorous planners and administrators at the higher levels but the system is afflicted with a glaring void in the middle management level which considerably vitiates the energies and efforts of those at the top The classical management syndrome is evident in such an environment with the competent few dissipating their planning and managemen efforts in coping with day-toshyday operational details rather than devoting their creative energies to substantive policy and planning matters which directly bear on the countrys economic and social development
While the lack of middle management capability pervades practically all sectors of government its effect in a deleterious sense is particularly acute in the planning and project devcopment phases of the system given the countrys present economic situation
Jamaicas economy over the past several years has been heavily dependent on the inflow of development capital both in the public and private sector This capital inflow will be required at least for the next three to four years to offset a projected Current Account deficit in the range of US $200 million per year (at currant prices) during this period Jamaicas ability to mobilize external capital inflows of this magnitude will be largely predicted on a greatly improved capacity to prepare projects in a form sufficiently attractive to external lenders
Corollary to this need for external capital financing is the necessity to create employment opportunities and reduce the unemployment rate estimated at 21 in 1975 through domestically financed projects using the Governshyments Capital Development Fund(CDF) Projects must be
- 5 shy
identified to utilize unemployment workers in the creation of productive assets The present method of project preparation in the public sector is ill-suited for preparashytion of employment-creation oriented projects which tend to be more complicated than most Projects presently are usually prepared on a small scale in segments by individual agencies and ministries and are normally not coordinated with each other
The World Bank pointed out in a recent assessment that the present lead time to develop a project averages two years an inordinate amount of time considering Jamaicas need to attract concessionary capital inflows to offset an economically debilitating projected current account resource gap in the near term and the necessity to reduce the relatively high and politically volatile unemployment rate
The IDB has along with the World Bank recognized this project development deficiency and join AID in providing complementary resources in redressing the situation The IDB will provide two experts to develop a system for project development and their input will be closely coordinated with AIDs through the Permanent
Secretary of the IPPD
As Jamaicas need for concessionary loans is increasing
and the availability of such loans is dependent upon the availability of complex and large scale projects a capability to plan such projects within the public sector is a n-cessity which this project will address
Past attempts on the governments part to remedy this project preparation shortcoming have served more as palliatives rather than as cures for this deficiency These attempts have mainly focussed on employing foreign expatriates to prepare projects Wh]ile this method is costly not only in terms of financial outlays but in producing the development of a Jamaican capability in project design through perpetuation of the Crutch mentality Further the use of expatriate experts to design projects and the use of Jamaicans to implement
- 6 shy
them creates a difficulty in the latter group in not fully identifying with the undertakings which freshyquently augers ill for attainment of objectives
This project will direct its initial focus on developing Jamaican capabilities from the outset by establishing a Jamaican Project Development Resource Team of four persons in the IPPD with expertise in disciplines and sectors which are expected to receive the bulk of external and domestic capital funding over the next few years The members of this Team will receive intensive training in project design and impleshymentation and gather experience as instructors and advisors to the Ministry Work Groups This Team will then help organize Project Work Groups in ministries and assist them through training and advice in preparing individual ministrs projects
The ministries Project Work Groups should have one or more members who will subsequently be involved in the projects implementation This methodology of project design has the obvious advantage of melding the project development and project implempntation through personnel continuity thus eschewing the situation of having one group design a project and a second implementing it This appruach to the project deviates somewhat from the projects scenario presented in the PID In the former document a more gradual attainment of project development capability with a heavy dependence on the expatriate United States project advisors input was envisaged The present approach stresses the use of Jamaican resources at the outset ie the Working Group as the primary medium to develop project management capability with the role of the expatriate advisor still vital but diminished relative to the conceptualization presented in the PID
The GOJ fully agrees with this approach as it maximizes the role of Jamaicans in the project and considerably increases the number of ministries personshynel who are expected to be proficient in project manageshyment at the conclusion of the project
- 7-
B Detailed Description (Logical Framework)
1 Goal This project is based on a relativelysimple ends-means chain The Goal of the GOJ is to increase the utilization from the capital inflow from abroad and from domestic sources for its development objectives It wishes to increase the flow from instishytutional lenders such as the IDB the Canadian Intershynational Development Agency the European Economic Communshyity the World Bank etc This increased flow is possiblegiven the usual assumptions availability of loan funds on the part of the lenders projects of interest to the lenders and Jamaican political and economic conditions suitable for such loans
2 Purpose In order to increase the utilization of development capital the GOJ must improve its capabilshyity to plan and manage development projects
3 Outputs To accomplish the Purpose the GOJ proposes to do the following
i) Strengthen the Ministry of Finance (theInvestment Programming and Projects Division) to perform a leadership and facilitative role with respect to the line ministries where projects are planned and administered
ii) Identify projects it wishes developed and helporganize and train the ministries staff in Work Groups to plan and implement these projects on an accelerated basis
iii) Develop the necessary procedures and methods for this process including a Training Manual
4 Inputs The GOJ will establish a Project Developshyment Resource Team (PDRT) in the IPPD assisted by two US long-term specialists and 42 man-months short-term conshysultants on project preparation and implementation The GOJ will also supply the Work Groups and the logistic support required by the Project
The specific tragets means of verification and assumptions are shown on the Logical Framework Matrix
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- 9-
III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
- 10 shy
in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
- 12 -
B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
- 13 -
Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
- 14 -
C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
- 15 -
T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
- 16 shy
the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
- 17 shy
$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
- 18 -
IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
- 19 -
Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
- 20 shy
Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
- 21 shy
- 22 shy
4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
- 23 -
The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
- 24 -
Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
- 25 shy
the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
- 26 -
B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
- 27 -
The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
- 28 shy
71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
- 30 shy
preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
- 31 -
The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
- 32 shy
6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
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Figure 1 - Relationship of Guidance and
Experience in Projects
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
[ PROJECT SUMMARY AND RECOMMENDATION
A Recommendation
Grant (new AID obligation) - $375000
B Description of Project
(1) Project Components
AID
7 man-years of technical assistance long and short term in project analysis
preparation and project management training
GOJ
a) Salaries for increased staff four
professionals for Project Development Research Team
b) Administrative support
(2) Implementation
The project will be implemented by the
Investment Planning and Projects Division(IPPD) of the
Ministry of Finance in coordination with the Ministries
of Agriculture Education Public Service Health and Environmental Control National Water Authority and
possibly one or two others These latter entities will
provide the appropriate sector specialists to form
Project Development Working Teams within each ministry
The composition of these Working Teams will be determined
by the nature of the subsector activity which will be
projectized The IPPD will form a Project Development
Resource Team(PRDT) from its own members to train and
consult with the various Ministry Work Groups External
assistance to this PDRT is designed to impart the skills
and methods to make them a self-sustaining nucleus in
meeting GOJ needs
- 2 shy
(3) Purpose The purpose of the project is to Establish a GOJ capability on project design and manageshyment which will
a) increase the number of Jamaican development projects available for financinq by foreiqn and domestic sources and
b) improve the project implementation process and consequently reduce projects completion time
(4) End of Project Status A Jamaican capability to fully design projects will exist as well as an experienced consultative team the Project Development Resource Team More than 40 projects will have been designed in the period 1977 - 1980 (33 during years 1977-79) It is expected that the PDRTWorking Teams will desiqn and deshyvelop approximately ten projects per year Additionally the project expenditure rate will have been increased by 40 during 1977-1980 over the base period 1973-1976
(5) Summary Findings That a lack of project design and implementation capability exists throughout the majorshyity of government ministries in Jamaica which inhibits the presentation of projects for which external donor financing could be attracted
Reliance on project preparation in the past has by default fallen on external donor resources or through GOJshyfinanced project design consultdnts The consequence of this dependence on foreign experts has resulted in a lack of identification with the project by the implementators as they were not involved in its development not to mention the financial drain which results from payment being made to expatriate consultants Key determinants in explaining the extensive pipeline in many projects developed in the past have been (a) the division of roles between project design (essentially expatriate) and project implementation (locals) and (b) the need for better management of projects
That based on experience gained in other LDCs that a project design and implementation capability can be deshyveloped in Jamaica through a combination of brief but inshytensive formal training and on-the-project extensive instrucshytion supplemented initially by resident experts and by short-term consultants to assist in resolving especially difficult design problems with which the newly trained Jamaicans cannot cope
- 3shy
(6) Project Issues
No issues were raised during the PID review in AIDWashington and none of any significance emerged during the projects development to the PP stage The only major issue foreseen is the life-of-project funding for the project
Issue Backqround The PID for this project was submitted to AIDW on 12175 and reflected a Life-of-Project (L-0-P) cost of $475000 USAIDJs Grant Activity Data sheet for the FY77 Congressional Presentation(CP) submitted to AIDW on 1976 similarly stated a L-O-P Cost of $475000 Subsequent to these project data inputs AIDW prepared the finaldata sheets for the FY77 CP and reduced the L-O-P funding to $375000 The PID approval cable -- Annex A shy
quote suggests the PP not exceed the $375000 level proposed in CP
Discussion The project was designed to include an AID input of $475000 in order to achieve the outputs objectives of the project While the Project Design Team feels outputsobjectives can be achieved with the lesser amount of funding by elimination of Participant Training and reduction of the manmonths of short-term advisorsthe full amount could conceivably make the diffshyerence between the GOJ preparing a total of at least 33 projects during the 1977 - 79 period or falling several projects short of this objective
USAIDJ is not aware of the reason(s) why the PID and its FY77 CP figure of $475000 was reduced by $100000 other than perhapsthe usual funding program constraints of anticipated availability of Congressional appropriations for this Category (EampHR) of assistance USAIDJ strongly urges that the full funding reflected in the PP be provided and that the appropriate Congressional notification be made This proposed project is essentially directed toward establishing governmental capability in project design and improvement of management during the implementation phase these objectives the AID Work Group on Management Improvement and Development Administration identified as being an essential and all too often missing ingredient of development efforts Full funding of this project will contribute significantly to strengthening the management capabilities in project design and implementation of the GOJ
-4-
II PROJECT BACKGROUND AND DETAILED DESCRIPTION
A Background
Jamaica not unlike most developing nations suffers from a lack of administrative and management skills in the middle echelon of government It is fortunate in having a small and effective cadre of bright and vigorous planners and administrators at the higher levels but the system is afflicted with a glaring void in the middle management level which considerably vitiates the energies and efforts of those at the top The classical management syndrome is evident in such an environment with the competent few dissipating their planning and managemen efforts in coping with day-toshyday operational details rather than devoting their creative energies to substantive policy and planning matters which directly bear on the countrys economic and social development
While the lack of middle management capability pervades practically all sectors of government its effect in a deleterious sense is particularly acute in the planning and project devcopment phases of the system given the countrys present economic situation
Jamaicas economy over the past several years has been heavily dependent on the inflow of development capital both in the public and private sector This capital inflow will be required at least for the next three to four years to offset a projected Current Account deficit in the range of US $200 million per year (at currant prices) during this period Jamaicas ability to mobilize external capital inflows of this magnitude will be largely predicted on a greatly improved capacity to prepare projects in a form sufficiently attractive to external lenders
Corollary to this need for external capital financing is the necessity to create employment opportunities and reduce the unemployment rate estimated at 21 in 1975 through domestically financed projects using the Governshyments Capital Development Fund(CDF) Projects must be
- 5 shy
identified to utilize unemployment workers in the creation of productive assets The present method of project preparation in the public sector is ill-suited for preparashytion of employment-creation oriented projects which tend to be more complicated than most Projects presently are usually prepared on a small scale in segments by individual agencies and ministries and are normally not coordinated with each other
The World Bank pointed out in a recent assessment that the present lead time to develop a project averages two years an inordinate amount of time considering Jamaicas need to attract concessionary capital inflows to offset an economically debilitating projected current account resource gap in the near term and the necessity to reduce the relatively high and politically volatile unemployment rate
The IDB has along with the World Bank recognized this project development deficiency and join AID in providing complementary resources in redressing the situation The IDB will provide two experts to develop a system for project development and their input will be closely coordinated with AIDs through the Permanent
Secretary of the IPPD
As Jamaicas need for concessionary loans is increasing
and the availability of such loans is dependent upon the availability of complex and large scale projects a capability to plan such projects within the public sector is a n-cessity which this project will address
Past attempts on the governments part to remedy this project preparation shortcoming have served more as palliatives rather than as cures for this deficiency These attempts have mainly focussed on employing foreign expatriates to prepare projects Wh]ile this method is costly not only in terms of financial outlays but in producing the development of a Jamaican capability in project design through perpetuation of the Crutch mentality Further the use of expatriate experts to design projects and the use of Jamaicans to implement
- 6 shy
them creates a difficulty in the latter group in not fully identifying with the undertakings which freshyquently augers ill for attainment of objectives
This project will direct its initial focus on developing Jamaican capabilities from the outset by establishing a Jamaican Project Development Resource Team of four persons in the IPPD with expertise in disciplines and sectors which are expected to receive the bulk of external and domestic capital funding over the next few years The members of this Team will receive intensive training in project design and impleshymentation and gather experience as instructors and advisors to the Ministry Work Groups This Team will then help organize Project Work Groups in ministries and assist them through training and advice in preparing individual ministrs projects
The ministries Project Work Groups should have one or more members who will subsequently be involved in the projects implementation This methodology of project design has the obvious advantage of melding the project development and project implempntation through personnel continuity thus eschewing the situation of having one group design a project and a second implementing it This appruach to the project deviates somewhat from the projects scenario presented in the PID In the former document a more gradual attainment of project development capability with a heavy dependence on the expatriate United States project advisors input was envisaged The present approach stresses the use of Jamaican resources at the outset ie the Working Group as the primary medium to develop project management capability with the role of the expatriate advisor still vital but diminished relative to the conceptualization presented in the PID
The GOJ fully agrees with this approach as it maximizes the role of Jamaicans in the project and considerably increases the number of ministries personshynel who are expected to be proficient in project manageshyment at the conclusion of the project
- 7-
B Detailed Description (Logical Framework)
1 Goal This project is based on a relativelysimple ends-means chain The Goal of the GOJ is to increase the utilization from the capital inflow from abroad and from domestic sources for its development objectives It wishes to increase the flow from instishytutional lenders such as the IDB the Canadian Intershynational Development Agency the European Economic Communshyity the World Bank etc This increased flow is possiblegiven the usual assumptions availability of loan funds on the part of the lenders projects of interest to the lenders and Jamaican political and economic conditions suitable for such loans
2 Purpose In order to increase the utilization of development capital the GOJ must improve its capabilshyity to plan and manage development projects
3 Outputs To accomplish the Purpose the GOJ proposes to do the following
i) Strengthen the Ministry of Finance (theInvestment Programming and Projects Division) to perform a leadership and facilitative role with respect to the line ministries where projects are planned and administered
ii) Identify projects it wishes developed and helporganize and train the ministries staff in Work Groups to plan and implement these projects on an accelerated basis
iii) Develop the necessary procedures and methods for this process including a Training Manual
4 Inputs The GOJ will establish a Project Developshyment Resource Team (PDRT) in the IPPD assisted by two US long-term specialists and 42 man-months short-term conshysultants on project preparation and implementation The GOJ will also supply the Work Groups and the logistic support required by the Project
The specific tragets means of verification and assumptions are shown on the Logical Framework Matrix
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- 9-
III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
- 10 shy
in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
- 12 -
B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
- 13 -
Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
- 14 -
C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
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the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
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$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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Figure 1 - Relationship of Guidance and
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- 2 shy
(3) Purpose The purpose of the project is to Establish a GOJ capability on project design and manageshyment which will
a) increase the number of Jamaican development projects available for financinq by foreiqn and domestic sources and
b) improve the project implementation process and consequently reduce projects completion time
(4) End of Project Status A Jamaican capability to fully design projects will exist as well as an experienced consultative team the Project Development Resource Team More than 40 projects will have been designed in the period 1977 - 1980 (33 during years 1977-79) It is expected that the PDRTWorking Teams will desiqn and deshyvelop approximately ten projects per year Additionally the project expenditure rate will have been increased by 40 during 1977-1980 over the base period 1973-1976
(5) Summary Findings That a lack of project design and implementation capability exists throughout the majorshyity of government ministries in Jamaica which inhibits the presentation of projects for which external donor financing could be attracted
Reliance on project preparation in the past has by default fallen on external donor resources or through GOJshyfinanced project design consultdnts The consequence of this dependence on foreign experts has resulted in a lack of identification with the project by the implementators as they were not involved in its development not to mention the financial drain which results from payment being made to expatriate consultants Key determinants in explaining the extensive pipeline in many projects developed in the past have been (a) the division of roles between project design (essentially expatriate) and project implementation (locals) and (b) the need for better management of projects
That based on experience gained in other LDCs that a project design and implementation capability can be deshyveloped in Jamaica through a combination of brief but inshytensive formal training and on-the-project extensive instrucshytion supplemented initially by resident experts and by short-term consultants to assist in resolving especially difficult design problems with which the newly trained Jamaicans cannot cope
- 3shy
(6) Project Issues
No issues were raised during the PID review in AIDWashington and none of any significance emerged during the projects development to the PP stage The only major issue foreseen is the life-of-project funding for the project
Issue Backqround The PID for this project was submitted to AIDW on 12175 and reflected a Life-of-Project (L-0-P) cost of $475000 USAIDJs Grant Activity Data sheet for the FY77 Congressional Presentation(CP) submitted to AIDW on 1976 similarly stated a L-O-P Cost of $475000 Subsequent to these project data inputs AIDW prepared the finaldata sheets for the FY77 CP and reduced the L-O-P funding to $375000 The PID approval cable -- Annex A shy
quote suggests the PP not exceed the $375000 level proposed in CP
Discussion The project was designed to include an AID input of $475000 in order to achieve the outputs objectives of the project While the Project Design Team feels outputsobjectives can be achieved with the lesser amount of funding by elimination of Participant Training and reduction of the manmonths of short-term advisorsthe full amount could conceivably make the diffshyerence between the GOJ preparing a total of at least 33 projects during the 1977 - 79 period or falling several projects short of this objective
USAIDJ is not aware of the reason(s) why the PID and its FY77 CP figure of $475000 was reduced by $100000 other than perhapsthe usual funding program constraints of anticipated availability of Congressional appropriations for this Category (EampHR) of assistance USAIDJ strongly urges that the full funding reflected in the PP be provided and that the appropriate Congressional notification be made This proposed project is essentially directed toward establishing governmental capability in project design and improvement of management during the implementation phase these objectives the AID Work Group on Management Improvement and Development Administration identified as being an essential and all too often missing ingredient of development efforts Full funding of this project will contribute significantly to strengthening the management capabilities in project design and implementation of the GOJ
-4-
II PROJECT BACKGROUND AND DETAILED DESCRIPTION
A Background
Jamaica not unlike most developing nations suffers from a lack of administrative and management skills in the middle echelon of government It is fortunate in having a small and effective cadre of bright and vigorous planners and administrators at the higher levels but the system is afflicted with a glaring void in the middle management level which considerably vitiates the energies and efforts of those at the top The classical management syndrome is evident in such an environment with the competent few dissipating their planning and managemen efforts in coping with day-toshyday operational details rather than devoting their creative energies to substantive policy and planning matters which directly bear on the countrys economic and social development
While the lack of middle management capability pervades practically all sectors of government its effect in a deleterious sense is particularly acute in the planning and project devcopment phases of the system given the countrys present economic situation
Jamaicas economy over the past several years has been heavily dependent on the inflow of development capital both in the public and private sector This capital inflow will be required at least for the next three to four years to offset a projected Current Account deficit in the range of US $200 million per year (at currant prices) during this period Jamaicas ability to mobilize external capital inflows of this magnitude will be largely predicted on a greatly improved capacity to prepare projects in a form sufficiently attractive to external lenders
Corollary to this need for external capital financing is the necessity to create employment opportunities and reduce the unemployment rate estimated at 21 in 1975 through domestically financed projects using the Governshyments Capital Development Fund(CDF) Projects must be
- 5 shy
identified to utilize unemployment workers in the creation of productive assets The present method of project preparation in the public sector is ill-suited for preparashytion of employment-creation oriented projects which tend to be more complicated than most Projects presently are usually prepared on a small scale in segments by individual agencies and ministries and are normally not coordinated with each other
The World Bank pointed out in a recent assessment that the present lead time to develop a project averages two years an inordinate amount of time considering Jamaicas need to attract concessionary capital inflows to offset an economically debilitating projected current account resource gap in the near term and the necessity to reduce the relatively high and politically volatile unemployment rate
The IDB has along with the World Bank recognized this project development deficiency and join AID in providing complementary resources in redressing the situation The IDB will provide two experts to develop a system for project development and their input will be closely coordinated with AIDs through the Permanent
Secretary of the IPPD
As Jamaicas need for concessionary loans is increasing
and the availability of such loans is dependent upon the availability of complex and large scale projects a capability to plan such projects within the public sector is a n-cessity which this project will address
Past attempts on the governments part to remedy this project preparation shortcoming have served more as palliatives rather than as cures for this deficiency These attempts have mainly focussed on employing foreign expatriates to prepare projects Wh]ile this method is costly not only in terms of financial outlays but in producing the development of a Jamaican capability in project design through perpetuation of the Crutch mentality Further the use of expatriate experts to design projects and the use of Jamaicans to implement
- 6 shy
them creates a difficulty in the latter group in not fully identifying with the undertakings which freshyquently augers ill for attainment of objectives
This project will direct its initial focus on developing Jamaican capabilities from the outset by establishing a Jamaican Project Development Resource Team of four persons in the IPPD with expertise in disciplines and sectors which are expected to receive the bulk of external and domestic capital funding over the next few years The members of this Team will receive intensive training in project design and impleshymentation and gather experience as instructors and advisors to the Ministry Work Groups This Team will then help organize Project Work Groups in ministries and assist them through training and advice in preparing individual ministrs projects
The ministries Project Work Groups should have one or more members who will subsequently be involved in the projects implementation This methodology of project design has the obvious advantage of melding the project development and project implempntation through personnel continuity thus eschewing the situation of having one group design a project and a second implementing it This appruach to the project deviates somewhat from the projects scenario presented in the PID In the former document a more gradual attainment of project development capability with a heavy dependence on the expatriate United States project advisors input was envisaged The present approach stresses the use of Jamaican resources at the outset ie the Working Group as the primary medium to develop project management capability with the role of the expatriate advisor still vital but diminished relative to the conceptualization presented in the PID
The GOJ fully agrees with this approach as it maximizes the role of Jamaicans in the project and considerably increases the number of ministries personshynel who are expected to be proficient in project manageshyment at the conclusion of the project
- 7-
B Detailed Description (Logical Framework)
1 Goal This project is based on a relativelysimple ends-means chain The Goal of the GOJ is to increase the utilization from the capital inflow from abroad and from domestic sources for its development objectives It wishes to increase the flow from instishytutional lenders such as the IDB the Canadian Intershynational Development Agency the European Economic Communshyity the World Bank etc This increased flow is possiblegiven the usual assumptions availability of loan funds on the part of the lenders projects of interest to the lenders and Jamaican political and economic conditions suitable for such loans
2 Purpose In order to increase the utilization of development capital the GOJ must improve its capabilshyity to plan and manage development projects
3 Outputs To accomplish the Purpose the GOJ proposes to do the following
i) Strengthen the Ministry of Finance (theInvestment Programming and Projects Division) to perform a leadership and facilitative role with respect to the line ministries where projects are planned and administered
ii) Identify projects it wishes developed and helporganize and train the ministries staff in Work Groups to plan and implement these projects on an accelerated basis
iii) Develop the necessary procedures and methods for this process including a Training Manual
4 Inputs The GOJ will establish a Project Developshyment Resource Team (PDRT) in the IPPD assisted by two US long-term specialists and 42 man-months short-term conshysultants on project preparation and implementation The GOJ will also supply the Work Groups and the logistic support required by the Project
The specific tragets means of verification and assumptions are shown on the Logical Framework Matrix
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- 9-
III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
- 10 shy
in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
- 12 -
B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
- 13 -
Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
- 14 -
C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
- 15 -
T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
- 16 shy
the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
- 17 shy
$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
- 18 -
IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
- 19 -
Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
- 20 shy
Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
- 21 shy
- 22 shy
4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
- 23 -
The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
- 24 -
Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
- 25 shy
the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
- 26 -
B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
- 27 -
The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- 3shy
(6) Project Issues
No issues were raised during the PID review in AIDWashington and none of any significance emerged during the projects development to the PP stage The only major issue foreseen is the life-of-project funding for the project
Issue Backqround The PID for this project was submitted to AIDW on 12175 and reflected a Life-of-Project (L-0-P) cost of $475000 USAIDJs Grant Activity Data sheet for the FY77 Congressional Presentation(CP) submitted to AIDW on 1976 similarly stated a L-O-P Cost of $475000 Subsequent to these project data inputs AIDW prepared the finaldata sheets for the FY77 CP and reduced the L-O-P funding to $375000 The PID approval cable -- Annex A shy
quote suggests the PP not exceed the $375000 level proposed in CP
Discussion The project was designed to include an AID input of $475000 in order to achieve the outputs objectives of the project While the Project Design Team feels outputsobjectives can be achieved with the lesser amount of funding by elimination of Participant Training and reduction of the manmonths of short-term advisorsthe full amount could conceivably make the diffshyerence between the GOJ preparing a total of at least 33 projects during the 1977 - 79 period or falling several projects short of this objective
USAIDJ is not aware of the reason(s) why the PID and its FY77 CP figure of $475000 was reduced by $100000 other than perhapsthe usual funding program constraints of anticipated availability of Congressional appropriations for this Category (EampHR) of assistance USAIDJ strongly urges that the full funding reflected in the PP be provided and that the appropriate Congressional notification be made This proposed project is essentially directed toward establishing governmental capability in project design and improvement of management during the implementation phase these objectives the AID Work Group on Management Improvement and Development Administration identified as being an essential and all too often missing ingredient of development efforts Full funding of this project will contribute significantly to strengthening the management capabilities in project design and implementation of the GOJ
-4-
II PROJECT BACKGROUND AND DETAILED DESCRIPTION
A Background
Jamaica not unlike most developing nations suffers from a lack of administrative and management skills in the middle echelon of government It is fortunate in having a small and effective cadre of bright and vigorous planners and administrators at the higher levels but the system is afflicted with a glaring void in the middle management level which considerably vitiates the energies and efforts of those at the top The classical management syndrome is evident in such an environment with the competent few dissipating their planning and managemen efforts in coping with day-toshyday operational details rather than devoting their creative energies to substantive policy and planning matters which directly bear on the countrys economic and social development
While the lack of middle management capability pervades practically all sectors of government its effect in a deleterious sense is particularly acute in the planning and project devcopment phases of the system given the countrys present economic situation
Jamaicas economy over the past several years has been heavily dependent on the inflow of development capital both in the public and private sector This capital inflow will be required at least for the next three to four years to offset a projected Current Account deficit in the range of US $200 million per year (at currant prices) during this period Jamaicas ability to mobilize external capital inflows of this magnitude will be largely predicted on a greatly improved capacity to prepare projects in a form sufficiently attractive to external lenders
Corollary to this need for external capital financing is the necessity to create employment opportunities and reduce the unemployment rate estimated at 21 in 1975 through domestically financed projects using the Governshyments Capital Development Fund(CDF) Projects must be
- 5 shy
identified to utilize unemployment workers in the creation of productive assets The present method of project preparation in the public sector is ill-suited for preparashytion of employment-creation oriented projects which tend to be more complicated than most Projects presently are usually prepared on a small scale in segments by individual agencies and ministries and are normally not coordinated with each other
The World Bank pointed out in a recent assessment that the present lead time to develop a project averages two years an inordinate amount of time considering Jamaicas need to attract concessionary capital inflows to offset an economically debilitating projected current account resource gap in the near term and the necessity to reduce the relatively high and politically volatile unemployment rate
The IDB has along with the World Bank recognized this project development deficiency and join AID in providing complementary resources in redressing the situation The IDB will provide two experts to develop a system for project development and their input will be closely coordinated with AIDs through the Permanent
Secretary of the IPPD
As Jamaicas need for concessionary loans is increasing
and the availability of such loans is dependent upon the availability of complex and large scale projects a capability to plan such projects within the public sector is a n-cessity which this project will address
Past attempts on the governments part to remedy this project preparation shortcoming have served more as palliatives rather than as cures for this deficiency These attempts have mainly focussed on employing foreign expatriates to prepare projects Wh]ile this method is costly not only in terms of financial outlays but in producing the development of a Jamaican capability in project design through perpetuation of the Crutch mentality Further the use of expatriate experts to design projects and the use of Jamaicans to implement
- 6 shy
them creates a difficulty in the latter group in not fully identifying with the undertakings which freshyquently augers ill for attainment of objectives
This project will direct its initial focus on developing Jamaican capabilities from the outset by establishing a Jamaican Project Development Resource Team of four persons in the IPPD with expertise in disciplines and sectors which are expected to receive the bulk of external and domestic capital funding over the next few years The members of this Team will receive intensive training in project design and impleshymentation and gather experience as instructors and advisors to the Ministry Work Groups This Team will then help organize Project Work Groups in ministries and assist them through training and advice in preparing individual ministrs projects
The ministries Project Work Groups should have one or more members who will subsequently be involved in the projects implementation This methodology of project design has the obvious advantage of melding the project development and project implempntation through personnel continuity thus eschewing the situation of having one group design a project and a second implementing it This appruach to the project deviates somewhat from the projects scenario presented in the PID In the former document a more gradual attainment of project development capability with a heavy dependence on the expatriate United States project advisors input was envisaged The present approach stresses the use of Jamaican resources at the outset ie the Working Group as the primary medium to develop project management capability with the role of the expatriate advisor still vital but diminished relative to the conceptualization presented in the PID
The GOJ fully agrees with this approach as it maximizes the role of Jamaicans in the project and considerably increases the number of ministries personshynel who are expected to be proficient in project manageshyment at the conclusion of the project
- 7-
B Detailed Description (Logical Framework)
1 Goal This project is based on a relativelysimple ends-means chain The Goal of the GOJ is to increase the utilization from the capital inflow from abroad and from domestic sources for its development objectives It wishes to increase the flow from instishytutional lenders such as the IDB the Canadian Intershynational Development Agency the European Economic Communshyity the World Bank etc This increased flow is possiblegiven the usual assumptions availability of loan funds on the part of the lenders projects of interest to the lenders and Jamaican political and economic conditions suitable for such loans
2 Purpose In order to increase the utilization of development capital the GOJ must improve its capabilshyity to plan and manage development projects
3 Outputs To accomplish the Purpose the GOJ proposes to do the following
i) Strengthen the Ministry of Finance (theInvestment Programming and Projects Division) to perform a leadership and facilitative role with respect to the line ministries where projects are planned and administered
ii) Identify projects it wishes developed and helporganize and train the ministries staff in Work Groups to plan and implement these projects on an accelerated basis
iii) Develop the necessary procedures and methods for this process including a Training Manual
4 Inputs The GOJ will establish a Project Developshyment Resource Team (PDRT) in the IPPD assisted by two US long-term specialists and 42 man-months short-term conshysultants on project preparation and implementation The GOJ will also supply the Work Groups and the logistic support required by the Project
The specific tragets means of verification and assumptions are shown on the Logical Framework Matrix
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- 9-
III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
- 10 shy
in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
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B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
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Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
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C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
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the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
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$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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II PROJECT BACKGROUND AND DETAILED DESCRIPTION
A Background
Jamaica not unlike most developing nations suffers from a lack of administrative and management skills in the middle echelon of government It is fortunate in having a small and effective cadre of bright and vigorous planners and administrators at the higher levels but the system is afflicted with a glaring void in the middle management level which considerably vitiates the energies and efforts of those at the top The classical management syndrome is evident in such an environment with the competent few dissipating their planning and managemen efforts in coping with day-toshyday operational details rather than devoting their creative energies to substantive policy and planning matters which directly bear on the countrys economic and social development
While the lack of middle management capability pervades practically all sectors of government its effect in a deleterious sense is particularly acute in the planning and project devcopment phases of the system given the countrys present economic situation
Jamaicas economy over the past several years has been heavily dependent on the inflow of development capital both in the public and private sector This capital inflow will be required at least for the next three to four years to offset a projected Current Account deficit in the range of US $200 million per year (at currant prices) during this period Jamaicas ability to mobilize external capital inflows of this magnitude will be largely predicted on a greatly improved capacity to prepare projects in a form sufficiently attractive to external lenders
Corollary to this need for external capital financing is the necessity to create employment opportunities and reduce the unemployment rate estimated at 21 in 1975 through domestically financed projects using the Governshyments Capital Development Fund(CDF) Projects must be
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identified to utilize unemployment workers in the creation of productive assets The present method of project preparation in the public sector is ill-suited for preparashytion of employment-creation oriented projects which tend to be more complicated than most Projects presently are usually prepared on a small scale in segments by individual agencies and ministries and are normally not coordinated with each other
The World Bank pointed out in a recent assessment that the present lead time to develop a project averages two years an inordinate amount of time considering Jamaicas need to attract concessionary capital inflows to offset an economically debilitating projected current account resource gap in the near term and the necessity to reduce the relatively high and politically volatile unemployment rate
The IDB has along with the World Bank recognized this project development deficiency and join AID in providing complementary resources in redressing the situation The IDB will provide two experts to develop a system for project development and their input will be closely coordinated with AIDs through the Permanent
Secretary of the IPPD
As Jamaicas need for concessionary loans is increasing
and the availability of such loans is dependent upon the availability of complex and large scale projects a capability to plan such projects within the public sector is a n-cessity which this project will address
Past attempts on the governments part to remedy this project preparation shortcoming have served more as palliatives rather than as cures for this deficiency These attempts have mainly focussed on employing foreign expatriates to prepare projects Wh]ile this method is costly not only in terms of financial outlays but in producing the development of a Jamaican capability in project design through perpetuation of the Crutch mentality Further the use of expatriate experts to design projects and the use of Jamaicans to implement
- 6 shy
them creates a difficulty in the latter group in not fully identifying with the undertakings which freshyquently augers ill for attainment of objectives
This project will direct its initial focus on developing Jamaican capabilities from the outset by establishing a Jamaican Project Development Resource Team of four persons in the IPPD with expertise in disciplines and sectors which are expected to receive the bulk of external and domestic capital funding over the next few years The members of this Team will receive intensive training in project design and impleshymentation and gather experience as instructors and advisors to the Ministry Work Groups This Team will then help organize Project Work Groups in ministries and assist them through training and advice in preparing individual ministrs projects
The ministries Project Work Groups should have one or more members who will subsequently be involved in the projects implementation This methodology of project design has the obvious advantage of melding the project development and project implempntation through personnel continuity thus eschewing the situation of having one group design a project and a second implementing it This appruach to the project deviates somewhat from the projects scenario presented in the PID In the former document a more gradual attainment of project development capability with a heavy dependence on the expatriate United States project advisors input was envisaged The present approach stresses the use of Jamaican resources at the outset ie the Working Group as the primary medium to develop project management capability with the role of the expatriate advisor still vital but diminished relative to the conceptualization presented in the PID
The GOJ fully agrees with this approach as it maximizes the role of Jamaicans in the project and considerably increases the number of ministries personshynel who are expected to be proficient in project manageshyment at the conclusion of the project
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B Detailed Description (Logical Framework)
1 Goal This project is based on a relativelysimple ends-means chain The Goal of the GOJ is to increase the utilization from the capital inflow from abroad and from domestic sources for its development objectives It wishes to increase the flow from instishytutional lenders such as the IDB the Canadian Intershynational Development Agency the European Economic Communshyity the World Bank etc This increased flow is possiblegiven the usual assumptions availability of loan funds on the part of the lenders projects of interest to the lenders and Jamaican political and economic conditions suitable for such loans
2 Purpose In order to increase the utilization of development capital the GOJ must improve its capabilshyity to plan and manage development projects
3 Outputs To accomplish the Purpose the GOJ proposes to do the following
i) Strengthen the Ministry of Finance (theInvestment Programming and Projects Division) to perform a leadership and facilitative role with respect to the line ministries where projects are planned and administered
ii) Identify projects it wishes developed and helporganize and train the ministries staff in Work Groups to plan and implement these projects on an accelerated basis
iii) Develop the necessary procedures and methods for this process including a Training Manual
4 Inputs The GOJ will establish a Project Developshyment Resource Team (PDRT) in the IPPD assisted by two US long-term specialists and 42 man-months short-term conshysultants on project preparation and implementation The GOJ will also supply the Work Groups and the logistic support required by the Project
The specific tragets means of verification and assumptions are shown on the Logical Framework Matrix
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- 9-
III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
- 10 shy
in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
- 12 -
B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
- 13 -
Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
- 14 -
C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
- 15 -
T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
- 16 shy
the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
- 17 shy
$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
- 18 -
IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
- 19 -
Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
- 20 shy
Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
- 21 shy
- 22 shy
4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
- 23 -
The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
- 24 -
Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
- 25 shy
the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
- 26 -
B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
- 27 -
The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- 5 shy
identified to utilize unemployment workers in the creation of productive assets The present method of project preparation in the public sector is ill-suited for preparashytion of employment-creation oriented projects which tend to be more complicated than most Projects presently are usually prepared on a small scale in segments by individual agencies and ministries and are normally not coordinated with each other
The World Bank pointed out in a recent assessment that the present lead time to develop a project averages two years an inordinate amount of time considering Jamaicas need to attract concessionary capital inflows to offset an economically debilitating projected current account resource gap in the near term and the necessity to reduce the relatively high and politically volatile unemployment rate
The IDB has along with the World Bank recognized this project development deficiency and join AID in providing complementary resources in redressing the situation The IDB will provide two experts to develop a system for project development and their input will be closely coordinated with AIDs through the Permanent
Secretary of the IPPD
As Jamaicas need for concessionary loans is increasing
and the availability of such loans is dependent upon the availability of complex and large scale projects a capability to plan such projects within the public sector is a n-cessity which this project will address
Past attempts on the governments part to remedy this project preparation shortcoming have served more as palliatives rather than as cures for this deficiency These attempts have mainly focussed on employing foreign expatriates to prepare projects Wh]ile this method is costly not only in terms of financial outlays but in producing the development of a Jamaican capability in project design through perpetuation of the Crutch mentality Further the use of expatriate experts to design projects and the use of Jamaicans to implement
- 6 shy
them creates a difficulty in the latter group in not fully identifying with the undertakings which freshyquently augers ill for attainment of objectives
This project will direct its initial focus on developing Jamaican capabilities from the outset by establishing a Jamaican Project Development Resource Team of four persons in the IPPD with expertise in disciplines and sectors which are expected to receive the bulk of external and domestic capital funding over the next few years The members of this Team will receive intensive training in project design and impleshymentation and gather experience as instructors and advisors to the Ministry Work Groups This Team will then help organize Project Work Groups in ministries and assist them through training and advice in preparing individual ministrs projects
The ministries Project Work Groups should have one or more members who will subsequently be involved in the projects implementation This methodology of project design has the obvious advantage of melding the project development and project implempntation through personnel continuity thus eschewing the situation of having one group design a project and a second implementing it This appruach to the project deviates somewhat from the projects scenario presented in the PID In the former document a more gradual attainment of project development capability with a heavy dependence on the expatriate United States project advisors input was envisaged The present approach stresses the use of Jamaican resources at the outset ie the Working Group as the primary medium to develop project management capability with the role of the expatriate advisor still vital but diminished relative to the conceptualization presented in the PID
The GOJ fully agrees with this approach as it maximizes the role of Jamaicans in the project and considerably increases the number of ministries personshynel who are expected to be proficient in project manageshyment at the conclusion of the project
- 7-
B Detailed Description (Logical Framework)
1 Goal This project is based on a relativelysimple ends-means chain The Goal of the GOJ is to increase the utilization from the capital inflow from abroad and from domestic sources for its development objectives It wishes to increase the flow from instishytutional lenders such as the IDB the Canadian Intershynational Development Agency the European Economic Communshyity the World Bank etc This increased flow is possiblegiven the usual assumptions availability of loan funds on the part of the lenders projects of interest to the lenders and Jamaican political and economic conditions suitable for such loans
2 Purpose In order to increase the utilization of development capital the GOJ must improve its capabilshyity to plan and manage development projects
3 Outputs To accomplish the Purpose the GOJ proposes to do the following
i) Strengthen the Ministry of Finance (theInvestment Programming and Projects Division) to perform a leadership and facilitative role with respect to the line ministries where projects are planned and administered
ii) Identify projects it wishes developed and helporganize and train the ministries staff in Work Groups to plan and implement these projects on an accelerated basis
iii) Develop the necessary procedures and methods for this process including a Training Manual
4 Inputs The GOJ will establish a Project Developshyment Resource Team (PDRT) in the IPPD assisted by two US long-term specialists and 42 man-months short-term conshysultants on project preparation and implementation The GOJ will also supply the Work Groups and the logistic support required by the Project
The specific tragets means of verification and assumptions are shown on the Logical Framework Matrix
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- 9-
III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
- 10 shy
in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
- 12 -
B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
- 13 -
Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
- 14 -
C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
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the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
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$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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Figure 1 - Relationship of Guidance and
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- 6 shy
them creates a difficulty in the latter group in not fully identifying with the undertakings which freshyquently augers ill for attainment of objectives
This project will direct its initial focus on developing Jamaican capabilities from the outset by establishing a Jamaican Project Development Resource Team of four persons in the IPPD with expertise in disciplines and sectors which are expected to receive the bulk of external and domestic capital funding over the next few years The members of this Team will receive intensive training in project design and impleshymentation and gather experience as instructors and advisors to the Ministry Work Groups This Team will then help organize Project Work Groups in ministries and assist them through training and advice in preparing individual ministrs projects
The ministries Project Work Groups should have one or more members who will subsequently be involved in the projects implementation This methodology of project design has the obvious advantage of melding the project development and project implempntation through personnel continuity thus eschewing the situation of having one group design a project and a second implementing it This appruach to the project deviates somewhat from the projects scenario presented in the PID In the former document a more gradual attainment of project development capability with a heavy dependence on the expatriate United States project advisors input was envisaged The present approach stresses the use of Jamaican resources at the outset ie the Working Group as the primary medium to develop project management capability with the role of the expatriate advisor still vital but diminished relative to the conceptualization presented in the PID
The GOJ fully agrees with this approach as it maximizes the role of Jamaicans in the project and considerably increases the number of ministries personshynel who are expected to be proficient in project manageshyment at the conclusion of the project
- 7-
B Detailed Description (Logical Framework)
1 Goal This project is based on a relativelysimple ends-means chain The Goal of the GOJ is to increase the utilization from the capital inflow from abroad and from domestic sources for its development objectives It wishes to increase the flow from instishytutional lenders such as the IDB the Canadian Intershynational Development Agency the European Economic Communshyity the World Bank etc This increased flow is possiblegiven the usual assumptions availability of loan funds on the part of the lenders projects of interest to the lenders and Jamaican political and economic conditions suitable for such loans
2 Purpose In order to increase the utilization of development capital the GOJ must improve its capabilshyity to plan and manage development projects
3 Outputs To accomplish the Purpose the GOJ proposes to do the following
i) Strengthen the Ministry of Finance (theInvestment Programming and Projects Division) to perform a leadership and facilitative role with respect to the line ministries where projects are planned and administered
ii) Identify projects it wishes developed and helporganize and train the ministries staff in Work Groups to plan and implement these projects on an accelerated basis
iii) Develop the necessary procedures and methods for this process including a Training Manual
4 Inputs The GOJ will establish a Project Developshyment Resource Team (PDRT) in the IPPD assisted by two US long-term specialists and 42 man-months short-term conshysultants on project preparation and implementation The GOJ will also supply the Work Groups and the logistic support required by the Project
The specific tragets means of verification and assumptions are shown on the Logical Framework Matrix
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- 9-
III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
- 10 shy
in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
- 12 -
B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
- 13 -
Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
- 14 -
C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
- 15 -
T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
- 16 shy
the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
- 17 shy
$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
- 18 -
IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
- 19 -
Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
- 20 shy
Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
- 21 shy
- 22 shy
4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
- 23 -
The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
- 24 -
Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
- 25 shy
the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
- 26 -
B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
- 27 -
The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
- 28 shy
71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
- 30 shy
preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
- 31 -
The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
- 32 shy
6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
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Figure 1 - Relationship of Guidance and
Experience in Projects
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- 7-
B Detailed Description (Logical Framework)
1 Goal This project is based on a relativelysimple ends-means chain The Goal of the GOJ is to increase the utilization from the capital inflow from abroad and from domestic sources for its development objectives It wishes to increase the flow from instishytutional lenders such as the IDB the Canadian Intershynational Development Agency the European Economic Communshyity the World Bank etc This increased flow is possiblegiven the usual assumptions availability of loan funds on the part of the lenders projects of interest to the lenders and Jamaican political and economic conditions suitable for such loans
2 Purpose In order to increase the utilization of development capital the GOJ must improve its capabilshyity to plan and manage development projects
3 Outputs To accomplish the Purpose the GOJ proposes to do the following
i) Strengthen the Ministry of Finance (theInvestment Programming and Projects Division) to perform a leadership and facilitative role with respect to the line ministries where projects are planned and administered
ii) Identify projects it wishes developed and helporganize and train the ministries staff in Work Groups to plan and implement these projects on an accelerated basis
iii) Develop the necessary procedures and methods for this process including a Training Manual
4 Inputs The GOJ will establish a Project Developshyment Resource Team (PDRT) in the IPPD assisted by two US long-term specialists and 42 man-months short-term conshysultants on project preparation and implementation The GOJ will also supply the Work Groups and the logistic support required by the Project
The specific tragets means of verification and assumptions are shown on the Logical Framework Matrix
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- 9-
III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
- 10 shy
in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
- 12 -
B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
- 13 -
Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
- 14 -
C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
- 15 -
T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
- 16 shy
the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
- 17 shy
$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
- 18 -
IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
- 19 -
Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
- 20 shy
Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
- 21 shy
- 22 shy
4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
- 10 shy
in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
- 12 -
B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
- 13 -
Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
- 14 -
C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
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the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
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$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
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-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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III PROJECT ANALYSIS
A Technical Analysis
A full technical description of the Project is
contained in Annex B This section deals only with an analysis of that technical plan
The technical problem confronting the Jamaican Government is a classical one for developing countries
how to get a critical mass of trained individuals from
a large variety of disciplines and organizations welded
into an efficient system for planning and carrying out
development projects The traditional approaches are not
very satisfactory
1) The centralist approach attempts to form a
small group in a central organization (the National Planning Agency or Ministry of Finance) to do the job The advantage
of this approach is the relative ease of managing a small
group rather than several Ministries It is easier to recruit a small top-flight staff and more facile for lending institutions to deal with a single entity in the
Government This approach tends to produce faster projects
on paper but it produces severe problems for implementation
because the various technical groups responsible for
implementing were not sufficiently involved in the preparshyation It tends to result in difficulties during impleshy
mentation and delayed drawdown of funds
2) The training approach assumes that by training individuals in formal classroom sessions more and better
projects will follow Thus the GOJ has sent 42 persons
to the World Bank courses at the Economic Development
Institute or in Jamaica six persons to the University of Pittsburgh course in project management and several more
to the four-month OAS course in Kingston What happens to these people Some are so good they quickly get promoted to higher positions where they are not project
planners or managers Others go into private business because they can claim higher salaries Those who stay
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in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
- 11 -
The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
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B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
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Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
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C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
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the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
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$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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En
Experience
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Figure 1 - Relationship of Guidance and
Experience in Projects
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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in Government find that their associates bosses and government procedures have not changed -- they have changed And so their new concepts techniques and outlook most often are frustrated if the work environshyment and procedures are not adjusted to their training Moreover the skills are taught in the abstract with some exercises -- eg how to do a cash flow analysis or a critical path method -- but the learner has no help in actual application to a real project back at his organizational home
A further difficulty with the formal training approach is that it requires several months (World Bank and OAS have a four month course) making it not only costly but also resulting in nominations of those officials for the course who can most easily be spared from the job Hence a massive formal training strategy government-wise would be too costly and disruptive to be practicable
3) A third approach is to engage private consultants from Jamaica or the lending agencies These expatriate specialists can be quite good and relatively rapid but they usually have little knowledge of the local environshyment for the project are very expensive and leave no institutional capability in the GOJ to carry on
The technical design for this Project is an innovative one In 1973 AIDWashington through the Office of Development AdministrationTAB began an effort to develop better methods of Project Management and better training materials In 1976 AID established a Development Project Management Center in the US Department of Agriculture to gather and develop better training materials to stimulate regional centers in Latin America Asia and Africa to teach and consult and to service a select number of AID Missions with programs developing Project Management capability Based on this background consultants provided by the Office of Development Administration in collaboration with the GOJ have built on lessons iearned and designed a new approach in Jamaica which attempts to avoid the traditional constraints enumerated above
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The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
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B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
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Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
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C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
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the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
- 17 shy
$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
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The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
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Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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The details of the innovation are described in Annex B but in essence the basic principles of this design are to
i) Decentralize project planning to the Ministries and the organizational elements involved in the execution This marshals the energy of hundreds rather than a few
ii) Provide a leadership and resource role in the Ministry of Finance for the entire Government rather than a centralized project planning role
iii) Institutionalize the capacity to plan and implement within the GOJ to lower the costs of external consultants and dependence upon lending institutions
iv) Train a critical mass of officials within their own organizational context ie the Works Group and Ministry taking responsishybility for the particular project adjust together to the new methods
v) The personnel development of individuals is speeded up by learning from each other in Work Groups and the individuals desire for personal growth and satisfaction is harmonized with the organizations goal for achievement
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B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
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Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
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C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
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the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
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$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
- 21 shy
- 22 shy
4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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B Financial Analysis and Plan
The project is expected to cost US $550000 exclusive of a $80000 IDB confribution The GOJ will finance $175000 of the projects cost through the IPPD The balance of $375000 is proposed to be financed through an AID grant All of the GOJ share of the costs is additional to its current annual exshypense since they represent the cost of hiring the PDRT and related administrative cQst requisite to their support these costs being net additions to the present annual expense as the Team is being created specifically as a result of this project endeavor No project contributions are ascribed to ministries staff members who will form the Working Groups as they are expected to come from within existing minisshytry or intergovernmental personnel resources
The Financial Plan y Input is presented at Table 1 Project Cost by Output is shown in Table 2 The GOJ Contribution is composed of salaries for the four-man PDRT over the life of the project $135000 and an estimated $30000 for life-of-project administrative costs eg secretarial help transshyportation reproduction facilities etc plus $10000 for IDBs advisors The GOJ however prior to obshyligation of the AID funding under the project agreeshyment will convenant to finance a minimum of four members of the PDRT and if costs are higher than presently projected which may be the case if some members are contract employees the government will assume such costs
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Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
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C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
- 16 shy
the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
- 17 shy
$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
- 19 -
Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
- 21 shy
- 22 shy
4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
- 23 -
The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
- 24 -
Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
- 25 shy
the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
- 26 -
B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
- 27 -
The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
- 28 shy
71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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Table 1 - Financial Plan by Input
(US $000)
AID FX GOJ (LC) TotalUse
Technical Assistance
Long-Term 188 188
182Short-term 182
5Commodities 5
Salaries 145 1 145
30 30Administrative
175 550 2375Total
1 Includes $10000 Contribution to IDB advisors
2 Does not include $80000 IDB contribution
Table 2 - Project Cost by Output
GOJ (LC) TotalOutput AID FX
Trained and Operating Personnel (IPPD) 44 45 89
Training (other ministries) and
423Operations 307 116
38Training Manual 24 14
175 550Total 375
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C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
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the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
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$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
- 30 shy
preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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C Social Analysis
This projects thrust is to develop a Jamaican project development and management capability in governshyment ministries hence the sociological implications are in a direct and immediate sense confined to these groups The impact from the sociological perspective will be upon the organizational elements directly concerned with project development both in the Ministry of Finance and other ministries planning and implemenshytation segments No new organizational entities are being proposed although the project will cause an increase in staff of the Investment and Projects Division of the Ministry of Finance and quite possibly in the planning and project management segments of other ministries
In establishing a project development capability new methods will of necessity emerge Such new methodshyology however will not be disruptive of traditional patterns of operations since essentially no standard norm made venerable by years of doing it a particular way now exists As a result little or no resistance from the projects main actors ie those engaged in some degree in the projects implementation is expected In effect the project is considered fully compatible with what can be described as the socioculture environshyment of those most directly and intimately affected by the project
The project has a beneficent effect upon Jamaicas population as a whole but the effect is of an indirect and longer term variety As with the majority of projects designed to improve the institutional capability of government institutions the ultimate and indirect beneficiaries are the population these entities serve this of course because of improved or expanded services they can provide the population In this instance the improved and expanded services whatever they may be will have their genesis in the financial realm through attracting the capital required to as examples build an irrigation system or build additional vocational schools
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
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the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
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$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
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0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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T11hc uJIt iae impact of this proiect Upon ti1e popuiation might be described Lhusly well-designed projects attract financing capital which result in creation of new or improved services or infrastructure which provide employshyment income andor education health etc to all or segments of the population This can be described as the ultimate spread or multiplier effect of the project
A more immediate but still indirect effect of the project will be upon one of the poorest segments of the population the unemployed The unemployment rate at the end of CY 1975 stood at approximately 21 percent and unless this 1evel is reduced it will present economic and a social problems ofmagnitude which will result from the development perspective in a no-growth or regressive posture A conservative estimate is that 160000 additional jobs have to be created between 1976 - 1980 to provide employment for those currently idle and those who wili enter the labor force during the period If well prepared projects beget investment and using a basic economic principle the latter provides employment this project will have a pronounced economic-social beneficent impact upon the unemployed
It is expected that a considerable number of the projects prepared and a portion of those which are financed through external concessional capital or domestic financing will focus on development of the rural areas where the majority of Jamaicas poorer populashytion lives This expectation is based not only on the GOJs policy of reducing the countrys income disparity but also on external assistance agencies evolving preference for financing rural-oriented projects While other bilateraland multilateral agencies do not attach AIDs degree of priority to rural development to the
exclusion of infrastructure type projects they nonetheshyless to use the World Bank as an example are showing an increasing preference for financing rurai development projects which impact upon the poorest segment of populashytion (rural population invariably equating to poorest population in LDCs) Consequently it follows that
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the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
- 17 shy
$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
- 19 -
Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- 16 shy
the pro3ect will have a favorable indirect effect on the poorest segment of the population and will be socioshyculturally feasible
The projects sociological and economic impact upon women as in the case of males will be indirect and will result from improved services andor facilities to be financed by increased investment capital to be attracted by well prepared projects Women are expected to benefit equally with males as an indirect result of the project Womens direct role in the project will be proportional to their number in the Investment Programming and Projects Division (IPPD) and in planning and implementation units of the various ministries associated with the project It might be mentioned that a major contributor on the GOJ side in preparing this PP is a woman The IPPD has other females in professional positions on its staff There are no foreseen sociological implications culturshyally or role-wise attached to womens direct participashytion in the project
D Economic Analysis
The proposed project is expected to cost $640000 over the three years It is estimated that the capability which will be developed during this period will be able to prepare 33 public sector projects with a US dollar investment level of $550 million over the period 1977 shy1979 Assuming that 80 of the projects presented to the external donor community are financed this would result in an induced investment inflow of $548 million as a result of the project Even with deflation of this total by the amount of 50 (assuming that without the project the GOJ would be able to prepare a lesser number of projects some of which would be financed) the project would attract a net additional amount of $274 million The cost of the proposed program would represent less than 003 of the projected additional induced investment
Additionally the cost to the GOJ of consultants hired for project studies and design in the period 1973 -1976 averaged approximately $12 million per year or about
- 17 shy
$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
- 19 -
Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
- 20 shy
Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
- 21 shy
- 22 shy
4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
- 23 -
The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
- 24 -
Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
- 25 shy
the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
- 26 -
B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
- 27 -
The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
- 28 shy
71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
- 30 shy
preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
- 31 -
The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
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Figure 1 - Relationship of Guidance and
Experience in Projects
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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$240000 per project financed over these years Assuming that this amount would have had to be expended in the next three years without this project the net savings to the GOJ would be $79 million based on 33 projects to be prepared a further cost-effective argument for the project The intangible or non-quantifiable benefits of the proposed project further contribute to the plus side of the cost-effectiveness equation
These intangible benefits include the human resource development returns to be achieved through the capability which the direct project beneficiaries the PDRT and Ministries Work Groups will have achieved They include the indirect beneficiaries of the project the Jamaican population in general who will realize benefits to varying degrees from the increased investshyment levels The increased investment is expected to impact primarily on the poorest majority as approxishymately two-thirds of the projects expected to be prepared during the period 1977 - 1980 are expected to have a rural bias Additionally all projects prepared and financed will provide a greater scope for employment of Jamaicans since the investments will create employshyment consequently by extension the project will contribute to an increase in employment and income in the countrys economy In summary the proposed project should contribute to exceeding by substantial multiples the cost of the program
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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IV IMPLEMENTATION ARRANGEMENTS
A Analysis of the Recipients and AIDs Administrative Arrangements
Recipient
1 Implementing Organizations The key unit which will implement this Project is the Investment Programming and Projects Division (IPPD) in the Ministry of Finance In the fall of 1975 the functions of project evaluation were transferred from the National Planning Agency to the Ministry of Finance with a significant broadening of the responsibilities for the IPPD Presently the IPPD is assigned the following functions
preparation of the multi-year investment plan of the GOJ
identification and reviewfinalization of projects for financing by international institutions
negotiation of foreign loans for above projects
stimulation of counterpart units in the operating ministries for initial preparation of projects
devising government-wide procedures for impleshymentation of approved projects including preparation of requests for proposals approved contractor lists and evaluation procedures
The Division is headed by a capable senior-level official with a rank of Permanent Secretary reporting to the Finance Minister Direction by a Permanent Secretary helps to provide continuity access to ministerial levels increased importance for project development functions in the GOJ and increased stature for the Division
2 Organizational Setting The Ministry of Finance provides a suitable and powerful location for the IPPD in its role of leadership for project formulation and execution since the Minister of Finance is also the Deputy Prime Minister the second highest position in Government
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
- 23 -
The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
- 24 -
Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
- 25 shy
the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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Moreover the combination of the budget and treasury functions for the entire government along with the investment projects makes the Ministry of Finance one of the most powerful in the GOJ This leadership role makes the Ministry an excellent organizational home for implementing the objectives of this Project
The role of the Ministry of Finance (IPPD) in the project management process is shown in the flow chart below Note that projects are to be formulated in the operating Ministries with the Ministry of Finance providing evaluation priorities and recommendations to the Planning Agency and the Economic Council as well as to the Ministries This role places the IPPD at a key juncture in the formulation of projects
3 Structure Presently the IPPD is in a stage of transition to an expanded staff projected at 16 professionals The current thinking is that activities will be arranged in three groupings
1) Programming and Project Design broken down in sectoral sub-units
2) Project Analysis Review
3) Administrative Support Services
(See tentative Organizational Chart below)
This Project proposes the creation of a Project Developshyment Resource Team (PDRT) consisting of four or five Jamaican professionals and two US specialists The placement of the Resource Team will see it reporting to
the Deputy of the Investment Programming and Projects Division since the Team must coordinate very closely with
the sectoral units The organizational placement of the Team within the YPPD is shown on page 21
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
- 20 shy
Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
- 21 shy
- 22 shy
4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
- 23 -
The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
- 24 -
Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
- 25 shy
the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
- 26 -
B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
- 27 -
The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
- 28 shy
71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
- 30 shy
preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
- 31 -
The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
- 32 shy
6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
- 33 -
In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
Operating Ministry
Mii Finance
National Planning
Agency and SP PD
Economic Council
Cabinet
Flow Chart
Project Formulation Evaluation Approval
Identification
and
Conc epti on
Prelim Eva ation
Set
Priority
Set
Guidelines
Prepare Prepare
Project for Presentation
Econ Council for Ca inet
Project
Formulati o
Analyses and
Evaluation
Recommend
and Approval
Formal
Approval
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Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
Ministry of Finance
Investment Programming and Projects Division
(Organization Chart)
Permanent Secretary
Deputy
Resource Team
Analysis Inves tment Administrative and and Officer
Review Unit Project Section
Productive Physical Social Special
Sector Infrastructure Infrastructure Employment Unit Unit Unit Unit
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
- 23 -
The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
- 24 -
Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
- 25 shy
the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
- 26 -
B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
- 27 -
The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
- 30 shy
preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
- 32 shy
6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
- 33 -
In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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0
En
Experience
in
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Figure 1 - Relationship of Guidance and
Experience in Projects
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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4 Resources The vital resource needed to make this a viable project are competent professionals in the PDRT who can be retained long enough (three or more years) to warrant the investment in their development The GOJ as experienced great difficulty in recruiting competent
staff because of relatively low government salaries As of early May only eight professionals are in the Division out of an authorized 16 positions The options available are to 1) contract officials at a suitable salary One such officer is on board and one or two more may be recruited in this manner but morale problems may ensue if this number goes beyond three or four persons since contract personnel are usually remunerated at a higher level than civil servants 2) Some persons may be seconded from other Ministries though this number may also be small because of the reluctance to release good staff and the necessity to retain them about three years on the Team Nonetheless this option may yield one or two people 3) Utilize expatriates for a limited period of time funded by donor agencies until Division staff are trained to carry on their functions
Essentially the current strategy is to use a combination of the above options This Project would provide two US specialists for two years to help develop the PDRT The IDB plans to provide two specialists for design of the Government project planning system The IPPD will use contracting and seconding procedures as necessary to mount a Team It is believed that the problem is surmountable but it is critical enough to warrant treatment as an issue It is planned to have a mutually satisfactory concrete arrangement on staffing between the USAID and GOJ prior to obligation of funds
The Ministries will be required to assign Work Groups for preparation and implementation of Projects The IPPD staff believe this offers no problem and representatives from three Ministries saw no difficulty If the GOJ maintains a top-level push from the Ministers to projectize investment programs then this resource will be forthcoming
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
- 24 -
Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
-5shy
ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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The other resources of secretarial assistance office space classroom facilities office supplies and communicashytion equipment should pose no problem Needs for training equipment and technical publications will be met by this pro ject (See Annex E for list)
5 Commiitment to the Project Purpose by the top-level of the GOJ has been stated frequently The move of the IPPD to the Finance Ministry its expansion of function increased staffing and assignment to a Permanent Secretary rank are indications of this concern In May 1976 the Minister of Finance submitted the Budget to Parliament and restated the Governments objective to speed up project implementation and secure more foreign investment in Jamaica This commitment will be further tested when the GOJ is required to provide the Team Work Groups and other resources needed to engage in a major effort through this Project
6 Participation The Project has been carefully designed to engage the line ministries through their top-levels and Project Work Groups in the determination of what projects to plan what staff to assign and the resulting products The goal is to maintain the responsishybility at the operating level and to assist the organizashytion rather than isolated idividuals to obtain results The immediate beneficiaries of the Project are the Ministry of Finance and the operating Ministries This target population will be intimately involved with the operation of this Project The effect of the project on its indirect long-term beneficiaries the general population is discussed elsewhere in this paper
7 Incentives beyond participation are planned by a combination of the following actions
Award Certificates to those who successfully complete The training
Arrange awards of special recognition to Work Groups that achieve excellence in design and execution of projects
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
- 25 shy
the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
- 26 -
B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
- 27 -
The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
- 30 shy
preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
- 32 shy
6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
- 33 -
In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
- 2 shy
consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
- 3 shy
b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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Acknowledge and reward Ministries and Key executives whose performance in project accomplishments is noteworthy
Within the IPPD incentives to participation in the Project would derive from
Access to the best methodologies (state of the art) for project management available through the R amp D effort of AID (the office of Development Administration in the Technical Assistance Bureau sponsors of a Project Management Development Center)
Intensive coaching and experience as trainers and consultants which will be invaluable professional development
bull Opportunity to gain government-wide experience and knowledge an incentive to career growth
8 Coordination to achieve the Project Outputs is assigned to the proper organization the IPPD The previous comments have noted how the training and project plans will be coordinated with the Ministries National Planning Agency Economic Council and Cabinet The IPPD also serves as the focal point for coordinating the projects with the Budget and foreign lending institutions
Within the IPPD a small staff facilitates easy internal communication The PDRT will coordinate directly with other members but the Division Head or his alternate will maintain surveillance to assure this coordination
The AID and IDB contractors working with the IPPD will coordinate in the following ways
(1) Assistance Agreements and workplans will be coordinated through the IPPD Head
(2) Copies of periodic reports and evaluations will be reviewed by the IPPD Head with coordination occuring as necessary
(3) Day-to-day operational coordination will be obtained through informal and direct contacts among the advisors and counterparts and through the oversight of
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
- 27 -
The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
- 30 shy
preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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the IPPD official to whom the AID and IDB experts report
(4) The annual AID evaluations and quarterly USAID reviews provide a further check on coordination
2 AID Arrangements
1) USAID arrancements call for a direct-hire officer (the Program Officer) to monitor the Project The US long-term and short-term consultants would have the normal relationship to the Monitor and USAID The US contractors would have office space with their countershyparts and provide the usual report to the USAID Monitor Because the USATD staff is small in number and it lacks a techrical specialist in the subject matter USAIDJ will be assisted in the technical supervision required through periodic evaluations and consultant backup from AIDW
2) AIDW through the Technical Assistance Bureau (Office of Development Administration and the Development Project Management Center of the USDA sponsored by AID) will provide technical backstop to the USAID upon request This arrangement is convenient to the Mission because it lacks technical staff and appropriate for AIDW because of the special R amp D interest in this project by TAB qince it incorporates several pilot features which it intends to evaluate for possible replishycation elsewhere
3) AIDW will be requested also to procure the shortshyterm US specialists and the equipment and publications possibly through a PASA to lower overhead costs The Project Management Center in USDA can provide teaching materials and referrals on possible consultants USAID Jamaica will procure and administer the arrangements for the long-term consultants with backstopping assistance as required to be provided by AIDW
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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B Implementation Plan
The division of responsibilities1 Responsibilities for project implementation is charted below
IPPD USAID AIDW PASA Project US Con-Center tractors
1 Procurement of IPPD Personnel X
2 Procurement of US Contractors Equipment
X X X
3 Logistic support of US Contracshytors in Jamaica X
4 Technical back-X Xstopping
5 Direction of Project activishyties X
6 Training and Consulting PDRT
7 GOJ Project preparaLion an execution Ministries
8 Project Report-Xing X
9 Monitoring of Project X X
10 Annual Evaluashytions X X X
- 27 -
The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
- 28 shy
71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
- 30 shy
preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
- 31 -
The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
- 32 shy
6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
- 33 -
In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
- 2 shy
consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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Experience
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Figure 1 - Relationship of Guidance and
Experience in Projects
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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The relation of the two US resident specialists to their counterparts in the PDRT should be decided after the specialists arrive and become familiar with their couinterparts These specialists may serve either as advisors or as functionaries on the Team depending on the circumstances Eventually but within two years these specialists should turn over their duties for training and consultation to their counterparts as fast as the duties can be absorbed During the second year the time freed from Team operations will be allocated to development of a Training Manual
Duties of the US specialists are detailed in Annex B Direction of their day-to-day activities is vested in the Head of the IPPD or his designated represhysentative Reports required of the Contractors by AID will be coordinated with the IPPD and copies of such reports given to them Details for monitoring and evaluation procedures are described elsewhere in this Paper
2 Schedule of Key Events
63076 ProAg and PIOT signed
11176 US Contractors report for orientation in AIDW
113076 US Contractors arrive Kingston
1377 PDRT formed and US Advisors assigned to counterparts
2177 PDRT completes initial training
3177 Arrangements completed for Project Preparation Sequence I-1 Training begins
4477 Second Class (1-2) on Project Preparation starts
102577 First Annual Evaluation completed
1278 Training starts for Project Implementation (II-1)
11678 Training starts for Third Class on Preparation (1-3)
41278 Training starts for Second Class on Implementation (11-2)
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
- 29 -
Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
- 30 shy
preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
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Figure 1 - Relationship of Guidance and
Experience in Projects
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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71978 Training starts for Fourth Class on Preparation (1-4)
101378 EvaluaLion completed for second year
103178 Training Manual completed US specialists terminate residence PDRT assumes full responsibility
Jan-Dec shy
1978 Training as required Part-time consultation available to GOJ from Project
2 )
Nov79 Final Evaluation of Project completed
For further details on these milestones and critical events see the Cronogram Annex C and Performance Tracking Network Chart in Annex 0 Note also the schedule for Work Groups explained in the following section
3 Schedule for Work Groups 4
The estimated number of persons and Work Groups to be assisted by this Project are shown below
Sequence I Sequence II Full Project Cycle Implementation Cycle Work No No Work No No
Year Teams classes Persons Teams classes Persons
1 12 2 60 3 1 30
2 6 1 30 6 2 60
3 6 1 30 9 3 90
24 4 120 18 6 180
Sequence I refers to the training for preparation of
projects and for implementation It is called full cycle because the Work Groups will receive instruction and assisshytance both for preparation and implementation planning The emphasis will be on planning with lesser time spent on implementation measures since most of the Work Group will remain planners
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
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The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
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Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
- 3 shy
b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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Sequence II refers to preparation of Work Groups designated to implement Projects These Groups will receive an introduction to planning and much greater emphasis on the details of administering projects
Two classes of 30 each will be started in Year 1 Assuming an average of five persons per Work Group it would result in 12 Work Groups formed during that period Obviously the actual number of persons in the classes and Work Groups depends on decisions yet to be made regarding project priorities the scope complexity and content of such projects and the skill requirements for assembling the Work Groups Class sizes could vary from 15 to 40 persons and Work Groups sizes can range from 2 to 10 or so Hence it is not possible to predict exactly the number of persons eventually to be involved The numbers in the above Table are only averages
In Year 1 there would also be initiated a Sequence II class for 30 persons but note that the average size of an implementation Work Group is assumed to be 10 because more people are involved in the execution of a project than participate in the planning
The schedule calls for an initial emphasis on Project planning hence a total of 60 persons assisted in the first year and a declining number in succeeding years Meanwhile there is an acceleration of training for implementation each year from 30 to 60 to 90 persons
Assuming that both US contractors arrive at the
same time their residence terminates after two years The PDRT assumes full responsibility for training and consultation in the third year with short-term consultashytion available to them and the Work Groups upon request under this Project
The Training Manual will be formulated during the first two years incorporating the experience teaching materials techniques and formats derived from the Jamaican setting
In order to test the feasibility of this schedule a cronogram for all the phases of Sequence I and II was developed See Annex C The schedule provides for
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
- 31 -
The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
- 32 shy
6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
- 33 -
In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
- 3 shy
b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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preparation lead-time for organizing each class in collaboration with the Ministries it provides for
evaluations vacations and Manual writing The schedule appears feasible assuming cooperation and the resources
called for in this Paper
4 Short-Term Consultants
The plan calls for 42 man-months by fifteen
short-term consultants to make contributions at various
points of the project preparation and execution phases
The precise nature and duration of these requirements
will be developed by the resident US contractors and
the PDRT These requests are cleared with IPPD and the
local USAID prior to submission to the executing agency
in the US -- preferably a PASA agency working with
the Project Management Center which will provide techshynical referral services
The requirement for short-term experts for each
Full-Cycle Sequence I is based on the following analysis
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 1 3 3
on Planning
Preliminary Plan 2 3 6
Final Drafting 4 2 8
Implementation Planning 2 3 6
9 23
The Sequence II Project Implementation requirements
for each class are as follows
No of Weeks Total
Phase Consultants Duration Man Weeks
Instruction 2 3 6
Application 4 2 8
6 14
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
- 2 shy
consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
- 3 shy
b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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En
Experience
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Figure 1 - Relationship of Guidance and
Experience in Projects
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-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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The responsibilit for orienting the consultants coordinating their activities assigning their countershyparts (Groups or Classes) and judging their contrishybution will initially be performed by the US conshytractors in coordination with the PDRT until such time as the Team is trained enough to assume these responsishybilities on their own By the end of the second year these responsibilities will have been assumed entirely by the PDRT
The detailed procedures for initiating the requireshyment coordinating the request and providing the conshysultant will be worked out after the supporting agency has been designated This procedure and a list of posshysible resource people will form part of the orientation for the US contractors prior to their departure from the US
5 Logistic Support
The GOJ will provide office space for US longshyterm and short-term consultants and its own PDRT Team It will provide two secretaries full-time and such other clerical assistance as may be needed for the classes and Work Groups It will furnish the office supplies telephone transport office furnishings and other support normal to office operations It will arrange the classrooms and working quarters for the Work Groups in the Project The Head of the IPPD anticipates no difficulty in providing the above support
The US will finance and arrange procurement of the equipment list shown in the Annex included are special technical publications for the PDRT ard the Work Groups rapid duplication machines the COJ will provide an electronic stencilmaker for creating teachshying materials and d2sk calculators for the PDRT
- 32 shy
6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
- 33 -
In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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Experience
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Figure 1 - Relationship of Guidance and
Experience in Projects
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
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Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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6 Contract Arrangements
The requirement for two resident experts and 15 short-term consultants can be more easily met by some agency outside AID The local USAID does not have the staff nor the technical knowledge to select and contract these experts It will also be a burden for AIDW it is therefore proposed to have an outshyside agency procure the necessary short-term talent 1 Private contractors ordinarily charge high overheads (over 50) for such services so a likely alternate is to arrange an agreement with a Participating Agency of the US Government Since the technical referrals for recruiting these short-term experts are to come from the AID Project Management Center in the US Department of Agriculture (USDA) it is logical to suggest that the USDA Office of International Training be approached to perform this service They have the experience the staff and efficient procedures for contracting personnel arranging travel pay and related administration it is not intended that the procurement aciency assume technical direction or responsihility for the project operations Their function is to provide procurement and administrative services cnly The budget for the contractors assumes a 25 overhead charge on salaries for thes adminisshytrative services
7 Monitoring
The monitoring function will invIve quartershyly reports for the life of the project and annual evaluations The evaluation plan is described in the next section but will tie in with the monitoring process
1 However in view of the cash savings in overhead USAID will contract for the two long term advisors
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
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g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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In the USAID the Program Officer will monitor the Project In the IPPD the Head or his designee will monitor project operations The purpose of monitoring is to assure that project activities move according to plan Periodic and informal contacts between the IPPD and the USAID should provide opshyportunity for maintaining the project on course Either organization will nitiate a coordination at an time it feels the circumstances warrant makshying corrections in the plan or the activities Ordinarily a brief quarterly report on progress made against milestone events will suffice along with the appropriate fiscal report
The basis for this monitoring will be a detailed annual workplan made by the PDRT and the US conshytractors before operations commence The annual workplan will be at that level of detail which will permit the IPPD and the USAID to determine if proshygress is in accordance with the expectations of this PP Of course workplan modifications can be proshyposed whenever circumstances warrant provided there is coordination between IPPD and USAID
The Quarterly Report will be considered by IPPD and USAID as a basis for ay coordinated action deemed necessary Its format will be devised as far as possible in accordance with the evaluation methodology described in AID Guidelines since this will make annual evaluations easier
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
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Figure 1 - Relationship of Guidance and
Experience in Projects
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-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- 34 -
The specific timing for the Quarterly Report can bedesignated as a part of the annual workplan In generalthe Quarterly Report should be submitted Ly the end ofthe calendar quarter in March June and Septemberfourth quarter report
The will be waived in lieu of anevaluation Copies of the annual workplan the QuarterlyReport and annual evaluations will be sent to the PASA or contracting organization in the US
if and when the USALD or IPPD des]Les technical consultation on the Project it can request it of AIDWor of the Project Management Center in the USDA Abouttwo manmonths of consultant time will be available fromthe Project short-term consultant budget for this purpose if needed
C Evaluation Plan
About the eleventh month of year one and two of thisProject an evaluation will be completed which reviews progress of the preucading year and formulates the detailedoperating plan for the succeeding year
The third and final year of the Project will involvea special evaluation of the three preceding years insufficie~t depth to enable an examination of the lessonslearned from the Project for possible eplication elseshywhere AI ) tb rngh its Techni cal Asgiqtace Bureau(Office o [)evolopment Administration) has an R amp Dinterest in this Pcojont because of ts Onaova tvLe natu-cHen-e t iic piticipation of AIDW is planned in thisoverall cvtivw to evaluate the innovative aspects of the Project
This ov kdtion will fo llow the AID Eva]luationGuide]1 inns for mcthod Logy and format oF presentationThe Evaluation is a joint respons i ity of the IPPDand USAID Rep rosentatives of tLhe GOJ nd the USAID willform an Evaluation Commi ttee for t-h is purpose it wouldbe desirable to invite a represerntat ive from AIDW orthe Project Managemerat Cenrter Lojoin that CommitteeIt would a]so be use ful to inviL a representative ofone of the GO Ministries participating in the Project
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- 35 -
Ordinarily the documentation analysis and recommnenshydations will be prepared by the PDRT and US resident specialists It is then submitted to the Evaluation Committee for tis judgment Technical consultation is available from AIDW and the Project Management Center
Baseline data for the Project will be gathered before actual operations begin Preferably the baseline data would be ready when the first years operational plan is prepared since the Quarterly Report and annual evaluations will be measuring progress in terms of these baseline indicators
Most of the evaluatIon fact-gathering analysis and evaluation will be done by the PDRT and US resident specialists It would be desirable to include some Ministry representatives in the evaluation team to provide the viewpoint of those receiving the assistance An estimated one manmonth per year of outside consulshytant time should be set aside in the consultant budget to assist with the evaluation Participation of the Project Management Center is planned for each evaluashytion and may be provided at no cost to this Project
D Negotiating Status
Agreement with the GOJ ie Permanent Secretary IPPD MOF has been reached that they will provide the four members or the PDRT through seconding contracshyting or otherwise and that these personnel will be on-board in the Division at least 30 days ie October 1 1976 pri-or to the arrival of the US advisors The Team members will have complementary backgrounds in fields such as engineering economics system analysis and agricultural economics and will be well qualified based on extensive experience in these fields
Prior to the signing of the Project Agreement in June 1976 the GOJ will by letter assure AID that the four members of the PDRT will be seconded contracted or hired to the IPPD This stipulation will also be included in the FY76 Project Agreement
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
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x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
ANNEX A
DI EARIMENT OF 9TA E
Al L VUCLASSZFI~ikU Fkb Its 0736 kt (i~t~ ~Classificotion
TA CS
I--dl INwViSTSiEtT PROCFAPIM186 AU PAOJLCTS
ALA- iifIIL P51ODJCT Ahvt APPROVEZ PMRCEELN i
i- -PT4)F PP~ ASamp AiX1( )AGE OF LDVELOMIT VE SUGOST -A(C[cL -3759401l LLViI PROPOUt 14 C06kS~10RAlshy
V L4~( l Allfv WILLP 1 Ol~loampiLiFDEV ASUIANCE IF NiUrLe 1UGLI$OL14ILE~- try
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
- 2 shy
consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
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b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
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d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
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Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
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Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
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will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
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Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
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Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
ANNEX B
A Project Technical Details
1 Rationale
It has been estimated that a reasonable income and employment growth target for Jamaica during 1976 - 80 would require an investment of about $26 billion Of that amount about $15 billion would be needed from external sources Such an increase in external borrowingwould not be possible unless Jamaican capability to prepareand implement development projects were substantially increased
The problem facing Jamaica goes beyond the mere preparation of projects however for the successful execution of projects is also a requisite for developmentThe usual distinction between planning and implementation breaks down in practice For successful projects it is necessary for planning and implementation to interact at frequent intervals with replanning as a consequenceIn view of this the number of Jamaican civil servants that need training is quite substantial since the trainingshould be both for planners and managers of projectsThe outputs of the project are to create a Jamaican training and consulting capability which will increase the Jamaican organizational capability to plan and administer projects
2 Concept of a Jamaican Project Development Resource Team
Assisted by two consultants in residence for two years and some short term specialist assistance (Jamaican or American) a selected inter-disciplinary full-time Jamaican team will help teams of civil servants plan and carry out projects The Jamaicans chosen for the ProjectDevelopment Resource Team (PDRT) would represent a mix of relevant disciplines with some project experienceand an interest and readiness to upgrade their skills and knowledge of disciplines other than their own Throughdirected self study seminars and participation in consulshytation on actual projects within two years of the start of operations the Team should be able to carry out the project consultiig without assistance from the resident
- 2 shy
consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
- 3 shy
b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
-4shy
d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
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ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
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h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
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ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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consultants The PDRT would be in the Projects Division of the Ministry of Finance and would service the minisshytries and parastatal organizations of the Government of Jamaica
The Government of Jamaica has exprcssed an urgentinterest in achieving an organizational capability in project management in the following areas
Agriculture
Rural Water Supply
Feeder Roads
Public Utilities
Education
Heaith
Industry
This is in harmony and pursuance of the expressedpolitical goals enunciated by the Prime Minister in a number of major addresses
3 Project Design
a) Emphasis on Jamaican Government ProjectDevelopment Capability - The mechanism chosen by the GOJ is one which recognizes the size of the task the organishyzational character of project management and the need for a Jamaican as distinct from expatriate capability in both consulting and project management There are 22 Jamaicans who are Fellows from the Economic Development Institute (EDI) Twenty Jamaicans have been through a one-month EDI Regional Project Course given in 1970 and six Jamaicans have studied Project Management at the Universityof Pittsburgh Despite this training Jamaica has yet to achieve an organizational capability with sufficient numbers of trained people in a government-wide system for project development The GOJ recognizes that a Jamaican organizational capability in project development rather than mere individual capability can give Jamaica the project development capacity it needs
- 3 shy
b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
-4shy
d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
-5shy
ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- 3 shy
b) The Project Development Resource Team
A Jamaica consulting team will cisist of four or five highly qualified Jamaicans with a mix of skills committed full time to upgrading their skill and consulting on projects The Team members should have complementary backgrounds in fields such as engineering economics systems analysis and agricultural economics Whatever the actual composition of the PDRT members will have to vigorshyously upgrade their knowledge particularly for disciplines relevant to project management outside their specialty This will be done through directed self study readings team seminars and participation in consulting on actual projects in collaboration with a foreign project management specialist The matter of training and upgrading of the PDRT is discussed in (g) below
A starting point for the PDRT is a visit to the Ministry or other using organization to discuss their interest in having designated working groups assisted in developing and carrying out specific projects After determining that there is a basis for working up the project the
organization and the Team would agree on working arrangements and together would select the working group members from
the organization An attempt would be made to select disciplines experience and skills To the extent possible the working group would be given terms of reference and
set of purposes which the project should meet with the understanding that these are tentative and subject to
further analysis by the Working Group
c) Organizational Approach to Training
Projects are planned and carried out by organizations not by isolated individuals Therefore to achieve a greater capacity for project development -equires that the performance of Working Groups be improved as they work on the job in their organization This is in contrast to the traditional trainshying arrangements where isolated individuals are trained away
from their organization
37
-4shy
d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
-5shy
ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
-4shy
d) The Working _gop
The GOJ believes that the most relaible way of giving an organization a capability in project manageshyment is to guide balanced Work Groups in designing and carrying out the project This provi-des a critical mass on which Top Management can dppend The guidance of Work Groups can normally take place only if the guidanceis accommodated within the operating exiqencies of the organization Otherwise thoseonly who can be sparedfor long periods of time are released for formal trainshying Some options that make it possible to guide Work Groups without disruption to the organization are aftershynoon or evening work sessions Saturdays or similar arrangements The specific options should be the choice of the organization
e) A Jamaican Framework of Project Analysis
Before guidance begins it is important that there be central agreement by Jamaican decision makers on what kind of analysis will serve Jamaican needs To arrive at this tr-miework a short seminar will be held in which the various Opt ions of possible i nteres[ c decision makers will be presented for considedtion Conceptssuch as shadow price of capital foreiqn exchange unskilled labor will be discussed with the goal of reaching an agreement on their iso a]ong with criteria that projects are to be measured aga instL The resultingcriteria will be combined in a framework that is compatshyible with criteria used by lending agencies An attemptwill be made to arrive at a preliminary format for documenting a project It may be desirable to have a Seminar with Jamaican technicians and then have a shorter one for administrators
f) Content and Style of Guidance
A class would consist of severaL Work Groupseach with its own project The pat tern of the sessions would be as folows
i) Concepts or techniques are introduced and illustrated with examples
-5shy
ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
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0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
-5shy
ii) Where practice is needed there may be individual practice exercises
iii) Each work group would then apply the concept or technique to their own project
Concepts and techniques would be introduced as they are needed and can be applied to the projects
The guidance given will be of two types
Sequence I - Guidance for Full Project Cycle which is the project work sequence for Work Groups responsible for planning a project and including implementation planning
Sequence II - Guidance for Implementation which is a project work sequence for Work Groups responsible for carrying out a project
Sequence I Guidance will have five phases
Phase 1 - Applying relevant concepts and techniques to the project after some general practice with the concept and technique in step with other Work Groups insofar as it can be done (about 80 hours of work under close supervision under PDRT)
Phase 2 - Work Groups apply relevant concepts and techniques to a project at own pace with full responsibility for timing and quality in consultation with the PDRT to produce Preliminary Plan for the project
Phase 3 - Review of Preliminary Plan (Technical and Administrative) by the Ministry and PDRT
Phase 4 - Work Groups receive part-time instruction on implementation planning and start work on final Plan
Phase 5 - Work Groups complete Plan with assistance If Project is approved and implementation conunences PDRT continues consultation as requested
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
-6-
Sequence II Guidance will have three phases
Phase A - Introduction to Project Planning for the Work Groups carrying out Projects
Phase B - Guidance on implementation conceptsand techniques under guidance of PDRT
Phase C - Carrying out the project in consultation with Project Development Team and techshynical assistance that is deemed necessary
The guidance will include what have become standardparts of project analysis generation of cash flowsand their analysis as required by lenders (benefit-costand cost effectiveness) Network analysis an extremelyuseful tool For both planning and implementation willbe covered But in addition there will be analysis ofcash flows and other economic and social effects fromthe point of view of participants and beneficiaries ofthe project such as low income Jamaicans women and small farmers
The guidance will be designed to orient the WorkGroup to an alertness to forces both inside and outsidetheir Project that involve attitudes (cultural psychoshylogical social) and power relationships that affectthe project and ways in which the proect can be designedand modified to cope with these forces to muster andmaintain support for the project
It will cover the organizational cptions and thedangers and advantages of each so that the group caninfluence the organizational design or at least copewith the organizational alternative that has been chosen
Explicit recognition will be given to the role ofvalues and will give the Work Group practice in designingproject purposes outputs and inputs on the foundationof these values This will assure that the group isresponsive to the goals of Top Management
An important orientation of Lhe guidance is an openness to innovation and better alternatives on the one hand and a critical evaluation of resilting alternatives
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
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En
Experience
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Figure 1 - Relationship of Guidance and
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wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
-7-
Such an orientation can be achieved by practice in techniques such as brainstorming and force field analysis in the course of the work
The sessions and work procedures will be structured to achieve a high degree of group integration where the diverse capabilities and strengths of the individual members are embodied in the project plan Just as important as the content is the example of openness to new ideas set by the PDRT
Making available to Top Management some results of the groups work and consulting them at various points should make for more realistic plans It will also highlight policy questions that have a bearing on the project
The Work Group is stronger if there is a mix of disciplines and patterns of collaboration among the members There is a tendency for each person to absorb and master materials closest to his discipline and there is a further tendency to gravitate to the tasks in which each is most competent There is considerable teaching and learning from each other in f-Ihe process of going through the necessary steps of preparing and implementing the project
The consulting role of the PDRT is critical in the groups functioning The data which the Work Group has available will tend to be unstructured incomplete and uncertain Assistance in coping with this is important if the group is to make progress build its capability and self confidence
Participation of the PDRT in consultation on actual projects should lead to improvements in future guidance efforts This is sketched in Figure 1
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
-8
Guidance in Project Management Techniques and
Concepts
0 QJH-
-t H-
0
En
Experience
in
Projects
Figure 1 - Relationship of Guidance and
Experience in Projects
wq
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
-9shy
g) Design for Upgrading the PDRT
It is assumed that the Jamaican members of the PDRT will have training competence and experience in subject matter fields such as Agriculture Economics Systems Analysis and Engineering along with some interest and knowledge in at least one other relevant field such as Management Psychology Sociology or other discipline There would be a short course of perhaps two weeks duration which would give them intensive training in a few core techniques and exposure to some others They would be given a select group of learning materials which they could study on a directed basis depending on their gaps in knowledge and interests They would then participate in the sequences with top project analysts on techniques criteria and forms to be used in Jamaican projects
It is expected that there will be at least two guidance classes in progress simultaneously Each session would be based on a limited amount of pre-designated material which members of the team could study beforehand The first phase on a subject would cenerally he handled by a resident specialist in project management This would be subject to a critique as to the effectiveness possibly by a training specialist The repeat of that phase would be taught by a Jamaican member of the PDRT who felt most confident with the particular material His handling of the session would be subject to critique as well If there is a third repeat session another team member would handle the session The purpose of this design is to have team members learn a style of presentation and interaction as well as content and give them practice in that style This is a workable strategy providing each session is based on a limited but highly relevant set of learning materials that team members could be expected to become thoroughly familiar with This makes it possible for their apprenticeship to start very early
As group work proceeds questions that the Work Group has will be filtered through the PDRT They would refer such questions to the project management specialists only after trying to answer such questions The atmosphere promoted would be We are all trying to learn
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- 10 shy
h) Other Resources
The PDRT will have resources that they can call onfor assistance They can call on Jamaican spor ialists inthe Jamaican Government and the Jamaican private sectorparticularly the engineering industry for some help onquestions that arise in the projects There will be abudget allocation for this They can also call for shortshyterm consultant help from abroad as needed byrequirements of each project the precise
Tn addition they will haveavailable learning materials on project management andadvice from the Development Project Management Center inthe United States Department of Agriculture
i) Advantages of the Approach
An important advantage of this design is that thearrangement sets up expectations by all that the outcomeof the training will be successful projects so that thePDRT Work Group members and Top Management all work together towards that end
When Top Management participates in the process ofdefining the Purposes of the project the terms of referencethe composition of the team the arrangements and theevaluation of progress it becomes more -commiitted to theeffort he content and emphasis of the pro ject is madeto reflect the nceds that- arc perceived by Top ManagementReporting onon progress projects includincj obstaclesalso brings Top Management into mean ingfu I contact withpolicies laws procedures customalry waiys of doing thingsthat have unfavorable impacts on projects Effectiveproject planning will identify seri-ous constraints andif Top Management follows the progress of the work theyare much more lik ly 1o consider these constraints andtake vigorous act- i)n to remove such cons-raints
j) The Pro net Manaciement Specialis ts
There wJ11 be two Project Managcmont Specialistsin residence working as part of tLhe PDRA They will bechosen to prov do th- widst possible range of skillsdisciplines and oxperience with one tronger in projectplanning and the other siocializing in pr1oject implementashytion Serving as resident advisors for two years they
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
AT
nj
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- lL shy
will provide leadership for
i) training of the Jamaican Project Management Team including seminars directed self study and how to consult on actual projects
ii) collection use and adaptation of learning materials to be used in guidance of working groups it is anticipated that they will get substantial assistance from the newly established Development Project Management Center in the US Department of Agriculture a USAID funded project
iii) the establishment of an interim project management system of documentation criteria and techniques agreed on with representatives of the GOJ until a more final system is adopted
iv) maintenance of a collaborative relationship with the IDB team that will be designing a final system for planning and carrying out projects It is anticipated that the experience of the Project Development Team will provide valuable inputs for the IDB team
v) establishing liaison with and arrangements for programs in individual ministries and parastatal organizations of (OJ
vi) With other members of the Pro ject Development Team establish in cooperation with the using organizations the arrangements and terms of reference of each work group
vii) Providing lead and prototype guidance in a way which will stimulate and sustain a team effort
viii) Arranging for short term consultation assistance as needed in collaborat ion w-ith the Jamaican team members
ix) Negoti-ating for participati-on of organizations to provide guidance assistance (Public Service Ministry OAS other ministries of GOJ especially for management related subjects)
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
- 12 shy
x) Arrange for short-term study trips abroad when warranted by specific staff developshyment needs
xi) Choice of audio visual aids
4 Analysis of Project Design
The design builds on the existing strengths of Jamaican civil servants It is an effective means of marshalling the substantial numbers of trained GOJ specialists into Work Groups and guiding them to use their individual strengths to create and carry out projects It provides for enough support for them to do the job but in a waywhich builds their independent capability to prepaL-e and carry out projects with a nimiutuni of outside assistance It provides an irmediate way in which the GOJ agencies can prepare projects but also gives assurance that the implementation will be successful as well Work Groupswho have created a final project should have enhanced capability to work on other projects with little foreign assistance
It shoulcl be recognized that the basic inpu ts of this project namely four man years of resident Americans four Jamaicans for three years and less than four man years of short term technical assistance will mobilize the coordinshyated and directed efforts of over 200 civi servants with some assurance that they can function on their own in subsequent years
Because the work is performed within and under the control of the responsible agency the proposed approachgains the support oC the responsible agencies of the GOJ The Projects Division of the Ministiy of Finance sees the proposed eifort as an offective way of achieving its investment goals within its present buJget capability
Politically it slatisfies the Jamaican desire to have a strong Jamaican Government capability in planning and carrying out proj(c-Ls
B Environmental Assessment
Due to the nature of this project an environmental assessment is not appropriate 44
AT
nj
P14
IN
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INo
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6nVIiU
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
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Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
Annex C
PPT FORM
Cou I JAYLA I CAC
Project No Project TiZte
52-03I 53200(039 NATIONAL PLANNING
Date kX Oiatl
517761 Reuvizo
Appavd
CPI DESCRIPTION
Critical Date
15 June76
Performance Indicators
ProAg and PIOT signed
(Ex cted Date)
30 June 76
101576 Advisors on Site 113076
121576 PDRT Training Completed 2177
21477 Training completed for two Planning Sequences-
93077
93077 First Evaluation Completed 103077
8178 Training Completed for four Sequences
93078
73078 73078
Second Evaluation Completed Manual Completed
93078 103078
12179 Final Evaluation Completed 21580
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
ANNEX C
CRONOGRAM OF ACTIVITIES
The Implementation Plan (Part 4 B) contains a Schedule of Key Events for the life of the Project This Cronogram focuses in greater detail on the project operations schedule -shythe training and project preparation processes This Cronogram was drawn to test the feasibility of the projected workload and manpower load within the time span of the project It is retained there as a background reference of the Project Plan with the intention that it be updated by the PDRT and
US contractors and adapted to the reality facing them when they design their first operational workplan
Cronogram of Project Operations
Explanation of Symbols
P1 -- Preparation period for arranging Projects Work Groups
schedules and logistics of each Sequence
P -- Preparation of specific subject matter content Sequence
for each
Sequence I -- the full cycle of planning and implementation
Sequence I-1 -- the first class 1-2 -- the second class
etc
Sequence II -- the cycle of implementation I-1 -- the first class I 11-2 -- the second class
etc
Sequence I Phases
1 -- Phase 1 is 80 hours Planning instruction
done in two weeks or more depending on needs
2 -- Phase 2 Preparation of Preliminary Plan
usually four weeks
3 -- Phase 3 Review by Ministry and IPPD of Preliminary Plan
4 -- Phase 4 Instruction on implementation planning varied in length according to needs
5 -- Phase 5 Work Groups Complete Plan with
assistance as needed 5
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
--
Annex C
-2-
Sequence II Phases
A Phase of 80 hours intensive instruction in two or more weeks on Project Implemenshytation
B -- Phase for implementation of Project with assistance as needed
Indicates variable time periods for completion of each plan or implementation
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
Annex C
ACTIVITY
0 1 2 3 4 5 6
WEEKS
7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24
Orientation of US Contractors in AIDW and USAID
Training of PDRT
Sequence I-i
u e 2 12 -4
Sequence 1-2
211 2
-3-
LAJ
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
Annex C
ACTIVITY
Sequence 1-2 (Con-d)
24 25 26 27 28
2
WEEKS
29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46
3 4 5
47 48 49 50
iVacationsi
E v a l u a t ion
Sequence II -1IP
-4shy
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
Annex C
WEEKS
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75
ACTIVITY
Sequence II-1 2 A (Contd) P2 A B
Sequence 1 -3 p1 21 2 3 4
Sequence 11 -2 i 2A
Work on Manual throughout Year
-5-
0T
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
Annex C
WEEKS
ACTIVITY
Sequence 1 -4
75 76 77 78 79 80
P2
81 82 83 84 85 86 87 88 89 90 91
1 2I
92 93 94
4
95 96 97
I
98 99 100
Sequence II -3 PP2 A
EvaluationI
B
SEnge rTour
Work on Manual during Year
-6shy
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
Annex C
Third Year
Continue Sequences under full responsibility of PDRT
This to be based on Work Plan for Year 3 to be
prepared by advisors Final evaluation to be conducted
45 days aftex project completion
-7shy
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
ANNEX D
OFFICE OF THE DEPUTY PRIME MINISTER
AND MINISTER OF FINANCE 26 EAST RACE COURSE
l ocif l 0 f10 i COI O1
g PO BOX 512
KINGSTON No 46072 JAMAICA Tor No 9q-500-S Es No
21atAugust 19 -2shy
fr Charles Campbell AID Mission to Jamaica
American Embassy 43 Duke Street
Kingston
Dear Sir
We recently discussed the question of technical assistance in
rth area of project preparation and project planning it was
explained to you that the Projects Diviaton of the National Planning
Agency is expected to be formally transferred to the Rinistry of
Finance iad that in fact it has already been informally transferred
as agrLed between the Prime Minister and the Deputy Prime Minister and
Minister of Finance
The Division is in great need of professional 3taff t
perform the duties related to proper project prialtrtion in orde that
the Government may have an adequate number of grojects to appraise in
its decisions on investment priorities So far with the best
intention in the world it has not been possible to recruit and retain
the necessary staff for thin purpose We have therefore felt that
it would be desirable to obtain external assistance in the procurement
ol 9taff whether in the form of direct assignment of Jamaicans abroad with external assistance for topping up their sakaries at least during
the adjutment period or the assignment of expatriate staff for lixed
periods
You have expressed an interest in assisting in this area and
we would appreciate such atssistance Whils we are not at this time
in a position to state the specific personnel that we would require
through USAID I give below an idea of the areas of greatest deficiency
Financial Analysist Systems Analysist or Organisation and Methods Specialist
Engineers particularly in the civil field and
Project Economists
We would like experienced personnel to whom we could assign counterpartt
In casto f xpatriates and who could impart their knowledge to juniors
af le experience
At a later date we would he able to give specific requests
but if 1u could check on possibilities in these areas I would be
Irateiul
Yours faithfully
F A R Mullings
-for Financial Secretary
FARM psw
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
ANNEX E
EQUIPMENT LIST
US Quantity Cost
Technical Publications $ 5000 (Reference books case studies training exercises and Manuals)
$ 5000
GOJ
Electronic Stencilmaker 1 Adding machine 1 Electronic desk calculators 3 Photocopy duplicating machine 1 Electric typewriter 1
Above GOJ-provided equipment to be made available from current Ministry Assets or to be purchased
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
ANNEX F
Draft Project Description for Project Agreement
1 Project Description
The purpose of this project is to establish a GOJ capability in project design and management which will increase the number of Jamaican development projects available for financing by foreign and domestic sources and to improve project implementation and consequently reduce project completion time
II Objectives
a During the period 1977-1980 40 or more minisshytries projects will be prepared with an average of approximately ten per year
b To increase expenditure rate of GOJ projects by 40 in period 1977-1980 over rate during 1973-1976
c A well-trained Project Development Resource Team (PDRT) with two or more years of experience will be fully operational in the IPPD at the conclusion of the Project
III Project Components
AID
Two man-years of technical assistance in project design and implementation
-- Forty-two man-months of short-term advisory assistance on project design and implementation encompassing various disciplines and sectors
Numerous technical publications to be provided to facilitate both project designimplementation and training relating thereto
GOJ
Salaries for four members of Project Development Resources Team
-- Administrative and operating support
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
ANNEX F - Page 2
IV Implementation
This project will be implemented by the Investment Programming and Projects Division of the Ministry of Finance Technical Assistance will be provided through a PASA with the Department of Agriculture AID ProjectManagement Center which will recruit and contract both long and short-term staff for the project the Center having unique experience in the field of project designand implementation
During the life of this project ways will be exshyplored to utilize the Project Development Resource Teamsthrough possibly training andor consultative help to improve the implementation of ongoing projects iethose initiated prior to this project toward the end of reducing existing pipelines (un-expended funds) which are normally indicative of slow implementation
The Project Development Resource Team within theIPPD will after a short period of training in projectdesign and implementation provide Consultative services to sector ministries in design and implementation of proshyjects Participating ministries ie those designingprojects will form Project Development Working Teams to formulate projects which when completed will be submitted for financing by external donors or from domestic public sector funds
V Evaluation
At approximately the llth mQnth of year one of this project (the start of the project considered to be at the time of arrival of the US advisors ie November 11976)an evaluation of the project will be completed which will review the progress of the preceding year and formushylate the detailed operating plan for the succeeding yearEleven months subsequent to the first evaluation a second one will be held with the review and planning (for sucshyceding year) objective similar to the first years
A special evaluation will be held shortly after the conclusion of the project (third year) which will be of sufficient depth to enable an examination of the lessons learned from the project for possible replication
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
ANNEX F - Page 3
elsewhere AIDW through its Technical Assistance Bureau (Office of Development Administration) has an R amp D interest in this project because of its innovashytive nature Hence the participation of AIDW is planned in this comprehensive special evaluation
VI Financial Obligations
US Contribution
AID agrees to obligate from FY 1976 funds an amount not to exceed $100000 for the following purposes $94000 for two long-term specialists in project design analyses and implementation and $5000 for purchase of technical publications
GOJ Contribution
The GOJ agrees to pay the salaries of the four members of Project Development Resource Team (PDRT) $45000 per annum plus provide administrative eg secretarial reproduction services etc and logistishycal support [est $10000 per annum) as necessary to support both the PDRT and US long-term advisors
Special Covenants
a The GOJ under terms of this project agreement agrees to rucruit second or contract for the services of the four member PDRT so as to have them assigned to the IPPD by October 1 1976 which is thirty days prior to the anticipated arrival of the two ATD-funded longshyterm specialists Ff the cost to acquire the services of the required experienced members of the PDRT exceeds that projected for this purpose ie $45000 per annum the GOJ agrees to assume such higher costs
Failure to provide the requisite number of members of the PDRT by the date indicated above will result in possible modification andor abrogation of this project agreement All) reserves the right to take sch action but will do so only after consultation with the GOJ
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed
ANNEX F - Page 4
b Pre-Project Commuittee To assure that-- the procedures criter-r-iid format that will be taught in project management [raining reflect government economic developmejnt policies a Pre-Project Committee will be established to provide guidance to the Project Development Resource Team and project management working groups on latest changes in publi c p- I ii o fnrt (love Iopment priori t i es and to suggest guideli nes to he followed in the design and implementation of pLamned projects The Coullittee should be comprised of high-level civil servants (eg permanent secretaries chief technical officers) designated I the GOJ ministries selected lar participation by gove1 rnment and will be active in overall project management activities throughout this project Tlhe Commitee will encourage the expression of different views and as appropriate will seek -luidance From appropriate ministers and i Fiecessary -he cabinet
The Lnmmittee wi11 provide guidance on the fu Klowing economic financial social and political considera tions i-n oidur to develop criteria for governimen LaI nv Lint pol icy
1 GuideJine n to enu ure considera io -a complete range o vai technologiesV e
2 Fiiianciii1 ani ecojomic analysis pieockdures such as a minimum rate f return for capitail
Llmt oilloylient income and (loin a I savings objct i vs 3 Governoi L fore1 n Lrede personal
The GOJ coven u t to cippollit this cojnitree within thirty days oi llisigning of this Project Agreement and tlie C I t(L iJ [] meet within two weeks following it IraL on AID is prepared to provide consultant J1t nce to the Committee from time to
time as _i ILyf ]Aed