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Document of
The World Bank
FOR OFFICIAL USE ONLY
Report No: PAD2206
INTERNATIONAL BANK FOR RECONSTRUCTION AND DEVELOPMENT
PROJECT PAPER
ON A
PROPOSED SECOND ADDITIONAL GRANT
IN THE AMOUNT OF US$30 MILLION EQUIVALENT
TO THE
HASHEMITE KINGDOM OF JORDAN
FOR A
MUNICIPAL SERVICES AND SOCIAL RESILIENCE PROJECT
December 28, 2017
Social, Urban, Rural and Resilience Global Practice
MIDDLE EAST AND NORTH AFRICA
This document is being made publicly available prior to Board consideration. This does not imply a
presumed outcome. This document may be updated following Board consideration and the updated
document will be made publicly available in accordance with the Bank’s policy on Access to
Information.
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CURRENCY EQUIVALENTS
(Exchange Rate Effective NOVEMBER 30, 2017)
Currency Unit = Jordanian Dinar (JOD)
JOD 0.709 = US$1
US$1.41 = JOD 1
FISCAL YEAR
January 1 – December 31
ABBREVIATIONS AND ACRONYMS
AF
AfD
Additional Financing
Agence Française de Développement (French Development Agency)
CBO
CITIES
Community-Based Organization
Cities Implementing Transparent, Innovative and Effective Solutions
CPF Country Partnership Framework
CVDB Cities and Villages Development Bank
DA Designated Account
ESMF Environmental and Social Management Framework
ESSRP
IBRD
IDA
IDP
ILO
Emergency Social Services and Resilience Project
International Bank for Reconstruction and Development
International Development Association
Internally Displaced Person
International Labor Organization
FM Financial Management
GOJ Government of Jordan
IF Innovation Fund
JRP Jordan Response Plan
MDTF Multi-Donor Trust Fund
MENA
MoMA
Middle East and North Africa
Ministry of Municipal Affairs
MOPIC Ministry of Planning and International Cooperation
MNAF
MSSRP
MST
Middle East and North Africa Vice President Unit for Free-Standing Trust Funds
Municipal Services and Social Resilience Project
Municipal Support Team
NGO Non-Governmental Organization
PM Participating Municipality
PMU Project Management Unit
POM Project Operations Manual
SC
USAID
UNDP
WBG
YM
Steering Committee
United States Agency for International Development
United Nations Development Programme
World Bank Group
Youth Monitoring
Vice President: Hafez Ghanem
Country Director: Saroj Kumar Jha
Senior Global Practice Director:
Practice Manager/Manager:
Ede Jorge Ijjasz-Vasquez
Ayat Soliman
Task Team Leader: Lina Abdallah Saeed Abdallah, Phoram
Shah
HASHEMITE KINGDOM OF JORDAN
MUNICIPAL SERVICES AND SOCIAL RESILENCE PROJECT
TABLE OF CONTENTS
I. Introduction .............................................................................................................................................. 1
II. Background and Rationale for Additional Financing in the amount of US$ 30 million ....................... 2
III. Proposed Changes ................................................................................................................................ 17
IV. World Bank Grievance Redress .......................................................................................................... 27
Annex I: Results Framework and Monitoring ............................................................................................ 28
Annex II : Procurement Assessment and Mitigation Measures ................................................................. 34
Annex III: Component 1: Municipal Grants .............................................................................................. 37
Annex IV: Component 1: Innovation Fund ................................................................................................ 41
Annex V - List of Eligible Municipalities under MSSRP .......................................................................... 44
Annex VI– Summary of Public Consultations ........................................................................................... 46
i
ADDITIONAL FINANCINGDATA SHEET
Jordan
Municipal Services and Social Resilience Project ( P161982 )
MIDDLE EAST AND NORTH AFRICA
GSU05 .
Basic Information – Parent
Parent Project ID: P147689 Original EA Category: B - Partial Assessment
Current Closing Date: 31-Dec-2017
Basic Information – Additional Financing (AF)
Project ID: P161982 Additional Financing
Type (from AUS): Restructuring, Scale Up
Regional Vice President: Hafez Ghanem Proposed EA Category:
Country Director: Saroj Kumar Jha Expected Effectiveness
Date: 02-Feb-2018
Senior Global Practice
Director: Ede Jorge Ijjasz-Vasquez Expected Closing Date: 31-Dec-2020
Practice
Manager/Manager: Ayat Soliman Report No: PAD2206
Team Leader(s): Lina Abdallah Saeed
Abdallah, Phoram Shah
PHApp
AuthTbl Approval Authority
Approval Authority
RVP Decision
Please explain
The proposed Second Additional Financing (and Restructuring) is fully funded by donor contributions
through a Multi-Donor Trust Fund (MDTF). The Parent project was also funded by donor contributions
through a MDTF, as well as the State and Peace Building Fund. As such, the Parent project was also
approved at the RVP level.
Borrower
Organization Name Contact Title Telephone Email
Ministry of Planning and
International Cooperation
(MOPIC)
Imad Najib
Fakhoury Minister (962-6) 462-9306 [email protected]
Project Financing Data - Parent ( Jordan- Emergency Services and Social Resilience-
P147689 ) (in USD Million)
ii
Key Dates
Project Ln/Cr/TF Status Approval
Date Signing Date
Effectiveness
Date
Original
Closing Date
Revised
Closing Date
P147689 TF-15776 Effectiv
e 12-Oct-2013 12-Oct-2013 12-Oct-2013 31-Dec-2016 31-Dec-2017
P147689 TF-A3529 Effectiv
e 30-Dec-2016 03-Jan-2017 03-Jan-2017 31-Dec-2017 28-Feb-2018
Disbursements
Project Ln/Cr/TF Status Currency Original Revised Cancelled Disburse
d
Undisbu
rsed
%
Disburse
d
P147689 TF-15776 Effectiv
e USD 52.71 52.71 0.00 52.71 0.00 100.00
P147689 TF-A3529 Effectiv
e USD 10.80 10.80 0.00 10.44 0.36 96.63
Project Financing Data - Additional Financing Municipal Services and Social Resilience
Project ( P161982 )(in USD Million)
[ ] Loan [X] Grant [ ] IDA Grant
[ ] Credit [ ] Guarantee [ ] Other
Total Project Cost: 30.00 Total Bank Financing: 21.12
Expected Donor
Funding: 8.88
Financing Source – Additional Financing (AF) Amount
MNA VPU Free-standing Trust Funds 21.12
Expected Donor Funding 8.88
Total 30.00
Policy Waivers
Does the project depart from the CAS in content or in other significant
respects? No
Explanation
Does the project require any policy waiver(s)? No
Explanation
Team Composition
iii
Bank Staff
Name Role Title Specialization Unit
Lina Abdallah Saeed
Abdallah
Team Leader
(ADM
Responsible)
Sr Urban Spec. Urban Specialist GSU11
Phoram Shah Team Leader Urban Specialist Urban Development
Specialist
GSU11
Lina Fares Procurement
Specialist (ADM
Responsible)
Senior Procurement
Specialist
Procurement Expert GGO05
Jad Raji Mazahreh Financial
Management
Specialist
Sr Financial
Management
Specialist
FM Expert GGO23
Amer Abdulwahab Ali
Al-Ghorbany
Environmental
Safeguards
Specialist
Environmental
Specialist
Environmental
Safeguards
GEN05
Andrianirina Michel
Eric Ranjeva
Team Member Finance Officer Disbursement Officer WFALN
Anton Karel George
Baare
Team Member Consultant Community Driven
Development
GSU07
Balakrishna Menon
Parameswaran
Team Member Lead Urban
Specialist
Institutional
Development and
Governance
GSU12
Charlene D'Almeida Team Member Program Assistant Operational Support GSU11
Ghada Abdel Rahman
Shaqour
Team Member Consultant Operational Specialist GSU11
Ibrahim Khalil Dajani Peer Reviewer Program Leader Program Leader MNC02
Julie Rieger Counsel Senior Counsel Senior Counsel LEGAM
Mariana T. Felicio Social Safeguards
Specialist
Senior Social
Development
Specialist
Social Development
Specialist
GSU05
Marie Roger Augustin Team Member Legal Analyst Legal Analyst LEGAM
Neha Dhoundiyal
Gupta
Team Member Financial
Management
Specialist
Disbursement WFALN
Sima W. Kanaan Team Member Lead Social
Development
Specialist
Lead Social
Development Expert
GSU05
Tobias Lechtenfeld Team Member Social Development Monitoring and GSU05
iv
Specialist Evaluation/Youth
Victoria Ahlonkoba
Bruce-Goga
Team Member Program Assistant Operational Support GSU05
Extended Team
Name Title Location
Locations
Country First Administrative
Division
Location Planned Actual Comments
Jordan Ma’an Ma’an X Added in the 2nd
year of
implementation
Jordan Irbid Irbid X
Jordan Zarqa Zarqa X Added in the 2nd
year of
implementation
Jordan Tafielah Tafielah X
Jordan Mafraq Al Mafraq X
Jordan Karak Karak X
Jordan Balqa Balqa X Added in the 2nd
year of
implementation
Jordan Ajloun Ajloun X Added in the 2nd
year of
implementation
Jordan Jerash Jerash X
Jordan Madaba Madaba X Added in the 2nd
year of
implementation
Institutional Data
Parent ( Jordan- Emergency Services and Social Resilience-P147689 )
Practice Area (Lead)
Social, Urban, Rural and Resilience Global Practice
Contributing Practice Areas
v
Additional Financing Municipal Services and Social Resilience Project ( P161982 )
Practice Area (Lead)
Social, Urban, Rural and Resilience Global Practice
Contributing Practice Areas
Consultants (Will be disclosed in the Monthly Operational Summary)
Consultants Required ?Consultants will be required
1
I. INTRODUCTION 1. This Project Paper seeks the approval of the Regional Vice President to provide an
additional grant in an amount of US$ 30 million equivalent1 to Jordan’s Emergency Services and
Social Resilience Project (P147689).
2. Responding to the request of the Government of Jordan (GOJ) to address the impact of the
large influx of Syrian refugees on Jordanian host communities, the World Bank launched the
Emergency Services and Social Resilience Project (ESSRP). The project was approved on October
11, 2013 for US$ 52.7 million, with the objective of helping Jordanian municipalities and host
communities address the immediate service delivery impacts of Syrian refugee inflows and
strengthen municipal capacity to support local economic development. The first additional
financing of US$ 10.8 million was approved in December 2016 to scale up project activities, which
increased the total project amount to US$ 63.5 million, contributed by six donors over four years.
Both the parent grant and the first additional financing grant are almost fully disbursed. Overall,
performance has been at least moderately satisfactory.
3. The proposed second additional financing (AF) entails a scale up and a restructuring aimed
at continuing the support to deliver municipal services in communities that are hosting large
numbers of Syrian refugees. The proposed second AF will also: (i) expand the project's scope to
include additional municipalities that have been impacted by the crisis but did not receive any
financial support under the ESSRP (Annex 5 provides a full list of municipalities to be included);
(ii) place increasing focus on deepening the capacity strengthening efforts to achieve more
sustainable, transparent and accountable service delivery; and (iii) focus on financing investments
that provide employment opportunities for Syrians and Jordanians and foster collaboration with
non-governmental organizations (NGOs) and the private sector through an additional sub-window,
‘innovation funds’, under municipal grants that provides project based financing to municipalities
on a competitive basis. As such, the proposed second AF will help further achieve the project’s
objectives while also supporting the Government’s commitment towards ‘turning the Syrian crisis
into a development opportunity’ and ‘rebuilding Jordanian host communities’2. To better reflect
this developmental approach and added emphasis on enhancing the quality of service delivery and
its impact on longer-term development, the revised PDO is to Support Jordanian municipalities
affected by the influx of Syrian refugees in delivering services and employment opportunities for
Jordanians and Syrians. It is also proposed to change the title of the parent project from
Emergency Services and Social Resilience Project (ESSRP) to Municipal Services and Social
Resilience Project (MSSRP). The proposed second AF will be financed through donor
contributions to a new Multi- Donor Trust Fund – the Municipal Services and Social Resilience
Project Trust Fund (TF072798)3.
1 Subject to funding being provided to the World Bank through the Multi-Donor Trust Fund (TF072798). 2 The Jordan Compact, 2016. 3 To date, Administrative Agreements have been signed with the Governments of the Netherlands (US$6 million), the
United Kingdom (DFID) (US$12.4 million), and the Government of Canada (CAD 15 million, or US$11 million
equivalent). In addition, contributions from the United States Agency for International Development (USAID) of
US$3 million are imminent. It is expected that the project may receive further additional contributions of US$23
2
II. BACKGROUND AND RATIONALE FOR ADDITIONAL FINANCING IN THE AMOUNT
OF US$ 30 MILLION
A. Country and Sector Background
4. The latest Jordan census records of 2015 indicate that Jordan is currently hosting nearly
1.3 million Syrian refugees, 80 percent of whom live in host communities. This number represents
about 13 percent of Jordan’s population. During the first two years of the Syrian refugee crisis
which began in 2011, the international community’s response focused almost exclusively on
providing humanitarian assistance to the refugees, including to those who fled to Jordan. As the
numbers of Syrian Refugees joining host communities in Jordan gradually increased, this increase
significantly strained the country’s systems and structures, adding pressure on basic service
delivery in water, sanitation, electricity, solid waste management, and overstretching health and
education systems. Gradually, the impact of the crisis on municipal infrastructure deepened, and
the socioeconomic impact across Jordan and in particular within host communities worsened.
5. The deepening of the Syrian crisis required an approach that recognized the protracted
nature of the crisis and sought to address its impact on the development prospects of the country.
The longevity of the crisis will likely translate into mounting costs and ever-increasing challenges
to the social and economic fabric of the country. One such challenge is related to mitigating social
tensions and fostering social cohesion between refugees and host communities in non-camp, urban
contexts. In response, the GOJ took the lead in preparing annual rolling Jordan Response Plans
(JRPs) which identified the country’s humanitarian and medium-term resilience needs in an
integrated fashion. The JRPs serve as a platform for coordinating donor support to the country’s
response plan to the crisis. Concurrently, the international community started shifting away from
short-term assistance towards building resilience of host communities and mitigating the socio-
economic impact on the country’s population.
B. Relationship to Country and Bank Strategies
6. Consistent with this shift in the overall approach to addressing the Syrian crisis, in February
2016, the GOJ signed the ‘Jordan Compact’ which put forward a more holistic framework for
addressing the crisis; an approach that (i) addresses the wellbeing of the Syrian refugees while
responding to the immediate needs of the host communities; and (ii) supports Jordan’s growth
agenda and longer-term resilience and economic stability. In addition, through the Jordan
Response Plan, the GOJ has put together a strategy that combines for the refugee crisis response
and long-term resilience into a single plan for each sector, including the municipal sector.
7. Moreover, the Jordan Economic Growth Plan 2018 – 2022, recently released by the GOJ,
aims to put Jordan on a sustainable growth trajectory and ensure its economic resilience in the face
of regional turmoil. The objectives include: active citizens with a sense of belonging; safe and
stable society; dynamic and globally competitive private sector; efficient and effective
government. Bank’s engagement through ESSRP has been relevant to the Economic Growth Plan,
million (Government of Netherlands US$6 million, Government of United Kingdom US$5 million and USAID US$12
million) in the foreseeable future.
3
in terms of improvements in access and quality of basic services and capacity building of
municipalities.
8. To help meet the commitments under the Jordan Compact and Jordan Response Plan, the
GOJ has requested the World Bank to extend and scale up the ESSRP. The donor community has
also expressed its interest in sustaining the Multi-Donor Trust Fund (MDTF) as a critical platform
for providing coordinated financing and institutional support to municipalities affected by the
crisis.
9. The MSSRP aligns with the World Bank Group (WBG) Middle East and North Africa
(MENA) Regional Strategy “resilience to Internally Displaced Persons (IDP) & refugee shocks”
pillar, and adopts a resilience and risk-based approach to social cohesion in urban areas. With the
goal of promoting peace and stability in MENA, the WBG’s Regional Strategy works on two
fronts: (i) addressing the underlying causes of violence and conflict in the region; and (ii)
mitigating the urgent consequences, such as the refugees and IDPs, and the destruction caused by
wars. 4
10. The MSSRP is also in line with the World Bank Group’s Country Partnership Framework
(CPF) for Jordan for FY17-22 (Report No.102746-JO) discussed by the Board of the Executive
Directors on July 14, 2016. The CPF acknowledges the challenges facing Jordan as a result of the
Syrian crisis and focuses one of its pillars on supporting improvements in the quality and equity
of service delivery. As such, a scale up of the ESSRP is fully aligned with the CPF and its targets.
11. Jordan’s CPF places high emphasis on gender as a key constraint to achieving shared
prosperity in Jordan. Gender disparities underlie a range of issues, from poverty and inequality to
labor market dynamics. This operation will seek to contribute to the WBG’s effort to mainstream
gender and ensure equal opportunities for women and men. The project will ensure that
investments financed include investments that will empower women and enhance their agency and
capacity to participate in the labor force through skills development and engagement in decision
making in the selection of priority sub-project investments.
C. Rationale for Additional Financing
12. The proposed second AF is aligned with the Government’s commitment under the Jordan
Compact, and the 2016-2018 JRP to respond to the protracted nature of the crisis. In particular,
the MSSRP aligns with the JRP objectives to: (i) strengthen resilience of local governance systems
and communities to crisis with a particular focus on social cohesion, and (ii) to create short-term
employment opportunities in host communities. The MSSRP operationalizes its support to GOJ
priorities as follows. First, by generating employment opportunities and by contributing to the
Government’s efforts to regularize the work force through alignment with ongoing initiatives.
Second, by placing a premium on addressing risks to social cohesion in response to tensions
between refugee and host communities and between local communities and administrative
authorities.
4 http://www.worldbank.org/en/region/mena/brief/our-new-strategy; An Exposition of the New Strategy ‘Promoting
Peace and Stability in the Middle East and North Africa, WBG/ Shanta Devarajan. December 2015
http://pubdocs.worldbank.org/en/418471453478675951/MENA-Strategy-Final-Dec-2015.pdf
4
13. The parent ESSRP was successful in supporting PMs to respond to the most pressing
municipal services’ needs, helping them address the most immediate impact of the Syrian crisis.
However, given years of under-investment, many of the PMs continue to lack the resources to
sustain their services and the quality and efficiency of municipal services continues to suffer from
lack of adequate human, financial and planning capacity. In addition, ESSRP was successful in
taking into account the needs of host communities by emphasizing community consultations as a
basis for making decisions for investments. While the quality of community consultations has
improved over the course of the project, such processes have not yet been adequately
institutionalized within the PMs.
14. It is with this in mind that the proposed second AF intends to enhance the project’s focus
on deepening the capacity of PMs to achieve more sustainable, transparent and accountable service
delivery, while continuing to support local service provision in the most affected municipalities.
The second AF will also expand its coverage to include additional municipalities that were not
targeted under the parent ESSRP, but currently face considerable pressure on their services due to
an increase in the percentage of Syrian Refugees as per the recent census data. Expanding the
scope to include new municipalities will also serve to further institutionalize the project’s model
of providing multi-year predictable financing to a larger number of municipalities. Finally, it will
allow for financing investments that generate employment opportunities for both Jordanians and
Syrians.
D. Parent Project Status and Performance
15. At this advanced stage of project implementation, ESSRP has already met all, but one of
the PDO and intermediate outcome indicator targets, and project implementation has been overall
satisfactory. Project supported services have reached 2,036,204 beneficiaries (surpassing the
original target of 1,800,000), of whom 253,147 were Syrian refugees, and at least 45 percent of
these beneficiaries were females (target 45%). All municipalities that have been participating in
the project since the first year have reached their pre-crisis level of per capita investments in roads
and solid waste management, and all (100%) PMs have also been clearing annual financial and
technical audits without adverse opinion (meeting the respective outcome indicator targets). To
date, a total of US$63.15 million has been disbursed, representing 99 percent of donor
contributions. The closing date of the ongoing grant was extended from December 31, 2017 to
February 28, 2018.
16. The indicator “Participating municipalities and governorates having emergency
management plans” was partially achieved: only two municipalities ended up implementing
Emergency Management Plans: Irbid and Mafraq. This corresponds to 10 percent of the total 16
PMs. It was agreed to support these two PMs on a pilot basis, with the option to roll out the pilot
based on the results of the pilot. Delays in implementing the pilots prevented rolling out in other
municipalities.
17. Municipal grants were invested across a range of assets including rehabilitated roads and
basic infrastructure, constructed or rehabilitated community spaces including parks, community
centers, soccer fields and knowledge centers, and service equipment, basic infrastructure and
5
community spaces, enhancing local service delivery. Given the acute shortages in capital
investments prior to the crisis, the project provided a critical opportunity for municipalities to
upgrade their equipment fleet to be able to address their biggest challenge: managing the
substantial increase in the volume of solid waste and wastewater generated by the host
municipalities, and the associated public health and environmental implications. Investments in
equipment represented an estimated 35 percent of the total value of grants. The remaining funds
were used to invest in upgrading strained basic infrastructure including roads maintenance and
construction of sidewalks, water drainage systems, retaining walls, and culverts. Opening of new
roads was also supported to keep up with the expansion of municipal areas due to construction of
new housing units for refugees. Municipalities also invested in building social spaces for youth
and children, including soccer fields and parks. Women were particularly targeted through
investments in skills development using spaces financed by the project. Several hangers were
financed, offering spaces for employing women in sewing workshops and providing spaces for
marketing home-based products. A few projects invested in economic activities that generated
employment opportunities.
18. Well into its fourth year of implementation, the impact of the ESSRP has become visible
in improving municipal services, particularly in smaller municipalities where small investments
had a relatively large impact. The project also provided a critical injection of funds that helped
offset a significant funding gap that for years has undermined the ability of municipalities to
deliver on their basic services. Additionally, the visible improvements helped restore trust between
communities and their Mayors. For example, Mayors and municipal council members expressed
were more empowered to implement service delivery investments that were proposed and
prioritized by the communities, and to have a sense of predictability of funds, for improved
municipal budgeting.
19. Despite positive impacts, the findings of independent monitoring reviews (see below)
indicate the need to further promote and institutionalize citizen engagement practices. In general,
smaller municipalities like Ma’an, Sahab, and Naour showed higher levels of satisfaction than
some of the large municipalities like Greater Irbid, Mafraq and Ramtha. Independent monitoring
points to the need for more rigorous consultation processes that also account for constraints on
women’s participation in the decision-making process. The new phase will emphasize further
institutionalization of these consultation processes.
20. Lessons Learnt: Throughout the four years of the ESSRP implementation, two
Government-led joint reviews were conducted - one at the end of the first year of implementation
(October 2014) and the other towards the end of the second year of implementation (September
2015). In addition, two independent monitoring reviews were completed by REACH5, and two
post-procurement reviews were carried by the World Bank, in addition to periodic supervision
missions. These reviews helped identify implementation bottlenecks – such as procurement delays,
weak monitoring and general capacity constraints across all levels of project implementation. Such
issues were addressed by adjusting thresholds for procurement at different levels of
implementation, and the recruitment in the second year of implementation of the Municipal
5 REACH is a sub-division of IMPACT - a leading Geneva-based think-and-do tank, its sister Agency for Technical
Development and Cooperation (ACTED), and the United Nations Operational Satellite Operations Programme.
REACH was contracted under ESSRP to provide third party monitoring support.
6
Support Team (MST) and a Monitoring and Evaluation Specialist. Although the project procured
the services of United Nations Development Programme (UNDP) to strengthen the community
consultations process, responding to a need reflected in the findings of the independent monitoring,
the quality of community consultations varied widely across the different municipalities. Hence,
alignment with community needs was not always very evident for the types of investment projects
financed. The World Bank addressed this by putting in place a framework to guide a uniform
consultation process for identifying investment priorities for the third year of implementation. Both
the ESSRP Project Management Unit (PMU), and MST teams supported this process and an
additional requirement was introduced under the project, requiring PMs to allocate 15 percent of
their grant allocations towards projects that demonstrated direct benefits to the community.
21. Overall, there has been considerable progress over the lifetime of the project in terms of:
(i) the quality of consultations; (ii) alignment of investments with community needs; and (iii)
quality of monitoring, supervision and reporting. However, several issues emerged that will need
to be addressed more systematically in the new phase of the project; namely – (i) the need for
improvements in the quality and efficiency of service delivery (ensuring allocation of sufficient
funding for operations and maintenance – O&M) through better project and financial planning; (ii)
the need to improve communications around the project’s objectives and activities – both internally
across the different levels of implementation but, more importantly, vis-à-vis the targeted
communities and the public at large; (iii) the need to introduce additional measures for
strengthening consultation and outreach activities and to ensure that investments are more directly
linked with improved social cohesion and resilience; (iv) improved targeting towards women and
youth and the integration of the voice of Syrian refugees amongst the served communities; and (v)
institutionalizing mechanisms for citizen feedback.
22. To address the issue of better targeting of resources towards services that benefit the
community and facilitate investment by the private sector in productive activities, the new phase
of the ESSRP will introduce a new sub-window for innovative projects. Funds under this sub-
window will only be accessed by municipalities who put forward proposals that meet specific
criteria to ensure that outcomes achieved through these investments correspond more directly to
the overarching objective of the project. Capacity, efficiency and sustainability issues will be
addressed through additional investments in capacity building and institutional support and the
provision of additional support to municipalities in areas of community outreach, gender, and
project planning. Communications will also be strengthened through the development and
implementation of a communications strategy.
23. Since its launch in 2013, the ESSRP’s implementation progress has been consistently rated
by the Bank’s team as ‘Moderately Satisfactory’ or higher. In addition, all the covenants have been
complied with under ESSRP, including audit and financial management reporting requirements.
The proposed second AF will build on the capacities vested in the existing institutional
arrangements of ESSRP in terms of project management. However, it would augment the
monitoring and reporting capacity of the implementing partners through a targeted capacity
building plan that includes stronger focus on communications, municipal services delivery
management, job creation, oversight of works, and specific attention to gender differentiated needs
and demands. The ESSRP has no outstanding covenants and the client has complied with all the
fiduciary arrangements required by the Bank.
7
E. Consideration of Alternative Funding
24. The main components of the parent project: i) Municipal Grants and ii) Institutional
Support and Project Management remain the same under the proposed second AF. The processes
for selecting and implementing sub-projects will be strengthened and the nature of sub-projects
will focus more on ensuring that services are sustainable and inclusive. In addition, there will be a
new sub-component introduced under municipal grant component that will provide project-based
financing to PMs selected on a competitive basis depending on a set criteria. However, this does
not change the nature or the over-arching objective of the component or the project. In light of
this, it is proposed that this new proposed phase of the project be processed as an AF, as opposed
to a new stand-alone project.
F. The Municipal Services and Social Resilience Project (MSSRP) – Theory of Change,
Objectives and Project Design.
25. The MSSRP aligns with the WBG MENA Regional Strategy “resilience to IDP & refugee
shocks” pillar, and adopts a resilience and risk-based approach to social cohesion in urban areas.
With the goal of promoting peace and stability in MENA, the WBG’s Regional Strategy works on
two fronts: (i) addressing the underlying causes of violence and conflict in the region; and (ii)
mitigating the urgent consequences, such as the refugees and IDPs, and the destruction caused by
wars. The two goals are related. If neglected, social tensions between refugees and host
communities could erupt into another cycle of conflict; poorly planned and delayed reconstruction
could trigger new cycles of conflict and violence. 6
26. The MSSRP responds to drivers of social tensions caused by the local impact of the influx
of Syrian refugees at the municipal level, through enhancements in the relevance and quality of
municipal services. Foremost, the proximate causes of these tensions include decreasing access to
affordable quality housing; economic competition regarding jobs; and perceptions of bias in the
responsiveness of the international community. Perceptions of differences in cultural and social
norms between refugee and host communities also constitute socio-economic causes of risks to
social cohesion. Meanwhile, social tensions also influence access to basic goods and services and
livelihood opportunities. As tensions rise, a vicious cycle may be set in motion that works against
social inclusion. For example, isolation may become an unfortunate coping mechanism for
displaced populations – keeping women at home and from accessing the space for participation
included in the MSSRP. With economic competition leading to frustration, resentment against
refugees is exacerbated.
27. Peoples’ perception of key issues matters in mitigation of risks to social cohesion. This
includes perceptions of how aid is delivered and to whom, and how government systems are seen
as being associated with equitable support – issues of equity and gendered and generational
inclusion, access, fairness of targeting and distribution, quality, appropriateness, and quantity.
These public perception aspects and their potential impact on relationships between refugees and
6 http://www.worldbank.org/en/region/mena/brief/our-new-strategy; An Exposition of the New Strategy ‘Promoting
Peace and Stability in the Middle East and North Africa, WBG/ Shanta Devarajan. December 2015
http://pubdocs.worldbank.org/en/418471453478675951/MENA-Strategy-Final-Dec-2015.pdf
8
host communities place a premium on communication and outreach within the purview of the
project and PMs.
28. Activities under the MSSRP are primarily aimed at (re)building trust between urban
residents (host and refugee communities) and municipal authorities, in order to address social
tensions and, in turn, promote peace and stability. For the purpose of the MSSRP, social cohesion
is understood as the nature and set of relationships between individuals and groups (horizontal
social cohesion); and between those groups and the institutions that govern them (vertical social
cohesion). 7 The focus of MSSRP is on tensions between urban communities and municipal
administrative authorities (risks to vertical social cohesion). The proposed second AF furthermore
takes account of tensions between refugee and host communities (risks to horizontal social
cohesion), to the degree that inclusive community consultations, transparent community decision
making, and conflict sensitive communication and outreach can mitigate these risks.8
29. Under the Theory of Change and Results Framework for the proposed MSSRP,
assumptions and indicators have been put in place to track and report on indicators that are
associated with the WBG’s MENA Regional Strategy Results Framework9, especially on
beneficiary satisfaction with services delivered, access to basic services, and citizen engagement.
The proposed second AF level theory of change is as follows:
• Service delivery: if communities experience improvements in access to (and quality of)
services, grievances over resource competition will be addressed, and there will be a
corresponding increase in positive perceptions of the other community.
• Municipal governance: if the municipalities are responsive to the local needs of Jordanian
host communities and Syrians, then individuals will be less likely to allow grievances
related to perceptions of inequity to exacerbate fault lines of social tensions;
• Participation, engagement and voice: if the social and economic interactions of Jordanians
and Syrians improve, then their mutual positive perceptions and trust will improve.
30. Project Development Objective: The objective of the MSSRP is to Support Jordanian
municipalities affected by the influx of Syrian refugees in delivering services and employment
opportunities for Jordanians and Syrians.
31. Project Beneficiaries: The project will target 21 municipalities: 14 participating PMs that
are already part of the parent ESSRP and an additional 7 municipalities. Therefore, it is expected
that the total number of beneficiaries will reach around 3 million, including more than 500,000
Syrians, who represent over 70 percent of Syrians living in host communities other than the Greater
Amman Municipality (or 44 percent of Syrians living across the country).
7 Social Cohesion between Syrian Refugees and Urban Host Communities in Lebanon and Jordan, World Vision
2015 8 Some dynamics that may impact on social cohesion, including public media and developments in political and security
domains, are outside the MSSRP remit and sphere of direct impact but, as explained, are relevant in the context of the overall
goal and aims of the MENA regional Strategy. 9 http://pubdocs.worldbank.org/en/275801457980901628/New-MENA-Strategy-Presentation-FINAL-for-Web.pdf;
& MENA Regional Strategy Results Framework
9
32. Project Components: The proposed second AF will maintain the parent project’s two main
components: (i) Municipal Grants; and (ii) Institutional Support and Project Management. There
are no major changes to the activities financed under each of these components. The only
adjustments with respect to the parent project pertain to the way in which these activities are
selected and delivered (including introducing an element of competition for accessing grants and
placing greater focus on labor intensive works, in line with lessons learned from ESSRP
implementation, as explained below).
Component 1: Municipal Grants (estimated US$27 million)
33. Municipal grants will be provided annually for a total of 21 municipalities. While the focus
under the parent ESSRP was on the provision of timely delivery of services as an emergency
response, the proposed second AF will place higher emphasis on sustainability, responsiveness,
and efficiency of services in a way that promotes longer-term resilience10 and mitigates risks to
social cohesion at local levels. This will be achieved by: (i) focusing on more inclusive community
consultations to ensure that investments better reflect Jordanian and Syrian women’s and men’s
needs and priorities; (ii) emphasizing that investments made through sub-projects are aligned with
municipal strategic planning over the medium-term; (iii) ensuring predictability of funding to
allow for better planning that takes into account the cost of operating and maintaining procured
assets and longer-term sustainability and resilience needs; and, (iv) encouraging municipalities to
use labor-intensive techniques for public works to support the generation of jobs for Jordanians
and Syrian refugees.
34. Given the amount of funding that the 14 PMs under ESSRP have already received over the
past three years, their allocations under MSSRP, will be set at a reduced per capita amount and the
focus will be on maintaining viable levels of service delivery and adequate operation and
maintenance of capital investments financed under the ESSRP. The allocations will be further
reduced in subsequent years with a view to gradually phase out external assistance and have
municipalities better manage their own resources over the course of the second AF. To maximize
the efficiency of investments amongst municipalities that have benefited from the ESSRP, the
renewal of their eligibility for second and third year grants would be conditioned upon achieving
a certain minimum percentage of commitments. New municipalities will receive higher per capita
municipal grants commensurate with their needs to rapidly improve their highly stressed local
services. In the same vein, new municipalities would benefit from more flexibility in prioritizing
their investments.
35. Such sub-projects could focus on, inter alia: (a) enhancements in basic infrastructure
including rehabilitation and maintenance of road networks and other urban infrastructure,
buildings, parks and economic and social infrastructure; (b) procurement of equipment to support
a range of municipal services including solid waste management, maintenance works and
sanitation; and (c) delivering improved social services to the community with special focus on
women, youth and vulnerable groups. Examples of sub-projects to be financed through municipal
grants will include, but not be limited to, procuring solid waste equipment, equipment for improved
collection and disposal, small recycling activities, investing in alternative, energy-efficient energy
sources, roads improvement, social services and skills development training, particularly those
10 Social, political, economic and physical resilience, including potential impacts of climate change.
10
targeting youth and women, recreational and community facilities, public leisure spaces (e.g., tree
planting), etc.
36. Under the component, additional efforts will be made to strengthen the processes of
planning, implementing and monitoring the proposed investments/sub-projects and to ensure that
sub-projects take into account gender-specific needs of targeted communities and incorporate
improved design and operations and maintenance plans including on the principle of building back
better, to ensure physical sustainability of services and infrastructure against time and natural
hazards, particularly flooding. The proposed second AF will provide the municipalities with an
opportunity to work on their medium-term strategies linked with investment plans. This will ensure
that the proposed investments are aligned with municipalities’ medium-to-long term vision that
takes into account current challenges, such as expansion and highly strained services, as well as
potential for city growth and planned development.
37. Municipal investment plans will be presented to the communities during community
consultations and the proposed interventions will be prioritized with the communities. The
emphasis will be on inclusive community consultations, where women, youth, refugees and other
marginalized groups are well represented and their voices are heard. The proposed second AF will
also encourage and implement tools for citizen engagement and beneficiary feedback in selected
municipalities. The municipalities will be encouraged to include management plans to ensure
quality and monitoring of service delivery as well as operating and maintenance plans to ensure
sustainability of investments. In addition, municipalities will be encouraged to apply labor
intensive techniques in the proposed activities and investments. The process for selection of
municipal investments to be financed by the proposed second AF, including guidelines on the
consultation process and appraisal criteria, will be detailed in the Project Operational Manual,
which will be completed by February 28, 2018.
38. An Innovation Fund (IF) will be introduced under Component 1. The IF will finance
demand-driven projects that may be multi-year and may involve inter-municipality collaboration.
IF projects shall adhere to the following set of principles: (i) robust and inclusive participatory
consultations and planning, (ii) provide innovative solutions to local challenges faced by
communities, and (iii) contribute directly to the project’s outcomes. The IF will also encourage
municipalities to (iv) leverage resources and expertise by partnering with CBOs, NGOs, and
private sector in promoting improved services and employment opportunities for Syrians and
Jordanians. Municipalities will furthermore be encouraged to consider project ideas that have
surfaced through other donor-financed engagements, including the USAID-funded Cities
Implementing Transparent, Innovative and Effective Solutions (CITIES) project and other similar
consultative planning initiatives supported by the European Union, the French Development
Cooperation (AfD), and International Non-Governmental Organizations (NGO).
39. Innovation Fund processes and procedures. Initially, the IF will be launched as a pilot
during the first year and, subject to availability of additional funds, it could be replicated in a
second round. The IF cycle would have a two-step prioritization and selection process. Both steps
would require that projects be prioritized and selected based on the following criteria: (i) higher
focus on gender-mainstreaming; on females, youth, and marginalized populations as direct
beneficiaries; (ii) higher labor content (labor intensive works); (iii) employment generation
11
potential for Jordanians and Syrians; (iv) established partnerships with private sectors, NGOs,
etc.; (iv) inter-municipal cooperation: and, (v) ensured mechanisms for citizen engagement and
grievance redress. It is proposed that US$5 million be allocated for the pilot for an estimated
average grant size amounting to US$250,000. Technical support and backstopping to MoMA,
CVDB, PMs, and contractors will be provided by the International Labor Organization (ILO),
through a contractual arrangement funded under the MSSRP.
Component 2 – Institutional Support and Project Management (Estimated Amount
US$3.0 million)
40. Activities under this component will include: (i) institutional strengthening with
Specialists’ support, (ii) capacity building and trainings, and (iii) technical assistance. Under
institutional strengthening, local specialists will be hired (Annex II), to support and strengthen the
oversight and monitoring capacity of the PMU and CVDB while providing implementation
support to PMs. The 26 PMs will also benefit from customized technical assistance and training
to improve the quality and efficiency of their services, focusing on the following key aspects: (i)
improved strategic, financial planning, investment/project planning, and safeguards focus, (ii)
improved accountability vis-à-vis the communities through the use of citizen outreach and citizen
engagement tools with focus on gender-streamlining, (iii) targeting youth and females through
inclusive practices and projects in order to strengthen social cohesion between Syrians and
Jordanians. Finally, this Component will finance contracts with other organizations for supporting
implementation, including contracts with experts in labor-based works investments and YM. The
ILO has already produced a range of manuals and instructions tailored to the types of municipal
service activities typically implemented in Jordan, and specifically based on a sampling review of
implemented activities under ESSRP. Given ILO’s unique expertise, it was agreed that the PMU
would contract ILO, to develop guidelines and specifications on labor based methodologies for
different categories of works in municipal services; (b) provide capacity building for MoMA,
CVDB, PMs, and contractors, and technical support on labor-based technology during
implementation of works, and monitor progress in achieving the objective of the labor-intensive
activities.
41. The MSSRP will closely coordinate with other projects whose aim is to improve municipal
governance and enhance financial management capacity. Those include USAID’s CITIES and the
World Bank financed Advisory Services and Analytics on Strengthening Financial Management
Systems to Sustain Service Delivery in Municipalities affected by the crisis. The MSSRP will
leverage interventions proposed through these projects targeting many of the PMs under MSSRP,
to support its efforts to build the capacity of PMs particularly in areas related to improved financial
and strategic management, asset management, accountability, urban development and resilience,
community engagement and citizen feedback and any other areas where the existing capacity of
MSSRP implementing agencies is not particularly strong. To facilitate that, the MSSRP will ensure
that opportunities for capacity building and technical assistance provided by these two activities
are extended to all PMs MSSRP PMs.
42. Coordination and synergies with other donor and World Bank financed initiatives: The
World Bank is part of an informal donor group that is coordinating donor-financed projects
supporting national decentralization efforts and providing institutional support to the municipal
12
sector, particularly in the context of the refugee crisis. Through this platform, complementarities
between the different interventions are discussed and efforts are made to ensure synergies at the
activity level, particularly with the referenced USAID and the AfD financed investment program
and sector policy loans. The MSSRP is still seen as the instrument of choice for small-scale
interventions that support improvements in community services with opportunities for boosting
economic activity and small-scale employment generation initiatives in refugee -impacted
communities. An AfD operation, and possibly a future World Bank-financed project aimed at
promoting local economic development and addressing marginalization in lagging regions, will
focus on larger scale investments and a broader planning approach to promoting regional
development. With respect to the Bank’s own portfolio, the proposed second AF will leverage a
grant-financed project to support improvements in fiscal management working with municipalities
impacted by the crisis while looking at vertical municipal financing arrangements. The proposed
second AF will also benefit from an ongoing World Bank-supported assessment of gaps in housing
stock for different population groups and opportunities for improved housing planning, taking into
account the exponential rates of growth of urban centers. The Bank’s efforts to support youth
engagement will also be addressed by introducing, for the first time across the World Bank
portfolio in Jordan, a youth-monitoring component of labor-intensive works and services financed
through the proposed second AF.
G. Implementation Arrangements
43. The proposed second AF will use the same implementation arrangements as the parent
project. The ESSRP is implemented by MoMA with the support of CVDB on fiduciary and
safeguards aspects. Adhering to the ESSRP institutional setup, the second AF will be implemented
according to the following arrangements:
• An Inter-Ministerial Steering Committee (SC): The SC will continue to provide
strategic direction and exercise overall coordination and oversight at the national level. It
will be headed by the Secretary General of MoMA and include key ministries and agencies
such as Ministry of Planning and International Cooperation (MOPIC), MoMA, and CVDB.
It will continue to include representatives of participating governorates and municipalities
(on a rotating basis). The PMU will function as the Secretariat to the SC. The SC will meet
at least once every six months to endorse selection of targeted municipalities and list of
sub-projects to be financed. The TOR for the SC is being discussed and establishment of
the SC for MSSRP will be maintained as a condition of effectiveness.
• Overall Project Coordination: MoMA will continue to be responsible for overall project
coordination, management and reporting. The PMU within MoMA, comprising of a Project
Director, a Deputy Director (from CVDB), and a team of specialists in project
coordination, M&E, Public Awareness and Communication, Inclusion and Gender,
Community Outreach and Citizen Engagement, Field Based Financial management,
Project Planning, Procurement, and Project Field Supervision, will be responsible for day-
to-day project coordination, management and implementation oversight. These specialists
have been hired by the PMU. A Coordinator for the IF will also be placed in the PMU to
ensure the successful implementation of this pilot initiative. The overall PMU
responsibilities will include: (i) providing support to the SC, overseeing the planning and
13
supervision of project activities; (ii) coordinating with other donor-financed municipal
programs and amongst institutional partners and donors; (iii) overall monitoring and
evaluation of project implementation, including the preparation of semi-annual Progress
reports and quarterly updates on the Results Framework to the Government and
participating donors; and (iv) project related information and communication activities.
• CVDB will continue to support MoMA under a management contract. The management
contract between MoMA and CVDB for this purpose, which was put in place under ESSRP
as part of the Government contribution and maintained under the first ESSRP AF, will be
updated/maintained under MSSRP. CVDB will continue to be responsible for providing:
(i) fiduciary support to the project, including the preparation of withdrawal applications
and other financial requests; (ii) procurement of works, goods and services for items that
are beyond the procurement thresholds set for municipalities under the current regulations;
(iii) FM reporting; (iv) safeguards monitoring, oversight, and reporting; and (iv)
procurement of annual financial and technical audits for the entire project. CVDB capacity
is augmented with the hiring of field-based additional staff including two procurement
specialists, two financial management specialists, two field engineers, two gender and
outreach specialists, and two project planning specialists. CVDB will keep a nodal officer
as the Deputy Director of the PMU, who will report to the project Director on the above
set of activities.
44. Participating Municipalities (PM): The PMs will be responsible for the identification and
delivery of priority infrastructure and services to be financed through the Project, in close
collaboration with the beneficiary communities. PMs will be responsible for submitting and
executing proposals for financing service delivery activities while creating employment
opportunities. PMs will be assisted by field-based technical support in project planning and
formulation, monitoring of gender integration, engineering, procurement, and financial
management, as described earlier. This will involve: (i) the development/updating of municipal
development plans in a participatory manner, selecting, costing, and proposing priorities in
extension/rehabilitation of municipal services and operations and maintenance, for funding under
the municipal grants sub-component, and developing proposals for funding under the Project-
based grants sub-component, (ii) detailed programming of technical requirements, and
procurement of works, goods, and services according to the current regulatory thresholds; (iii)
carrying out community consultations, and (iv) management of activities, including consultation
with the communities and work supervision. It is expected that, as per the practice under ESSRP,
that the Local Development Units (LDUs) in PMs would play a critical role in leading the technical
coordination and implementation of investments under Component 1.
45. Participatory Monitoring and Evaluation: The beneficiary communities in the PMs will
contribute to the selection of priority activities through participatory processes which will be
detailed in the updated POM to ensure participation of females, youth and other groups that are
considered vulnerable. PMs would be expected to acquire the support of local social organizations
(NGOs, CBOs, charities, etc.), who in turn may use youth volunteers to facilitate the community
consultation process. Selection criteria for these groups will also include whether they explicitly
represent the interests of females and youth. In addition, the project will put in place arrangements
for youth monitoring of labor-intensive works to be funded through the project. The envisaged
14
arrangement would engage a local organization that will be in charge of mobilizing youth who
would be independently selected to provide monitoring support. The youth will be trained in
performing that function with technical support from the ILO.
46. Youth Monitoring for Labor Intensive Works: The project will apply Youth Monitoring
(YM) for the labor-intensive works activities, with the objective to complement regular monitoring
efforts with additional information, thereby strengthening the overall monitoring and evaluation
system used by the project. The YM approach involves monitoring by young community members
in partnership with the project management structure. It involves collecting information from
laborers and other beneficiaries, as well as implementing partners. The additional information can
help to enhance project efficiency and efficacy, and can be designed to strengthen safeguards
compliance. YM may be helpful in verifying that adverse impacts of the project are properly
mitigated and positive impacts are accurately captured. Dissemination of findings to the PMU and
implementing partners will be part of the YM process. The objective of YM will be to engage
youth (18-30 years) in the monitoring of selected public works activities, and will be coordinated
by an experienced civil society organization with YM experience on behalf of the project. Within
this framework, the main objectives of the assignment will be (i) to select, train, and supervise
youth monitors (individuals); (ii) to implement a YM training workshop for youth monitors from
each PMs; (iii) to coordinate the YM data collection by youth monitors on an agreed frequency;
and (iv) to draft a YM report to be submitted to the PMU, World Bank and other relevant
stakeholders. The YM assignment requires working in close collaboration with the PMU and PMs.
Youth monitors will be identified in each PM in partnership with local universities, vocational
training centers, or other relevant institutions. Labor-intensive methods will be introduced, and
relevant stakeholders centrally and at the local municipal level will receive adequate training and
hand-holding, including contractors and engineers of eligible municipalities. The ILO will be
contracted under the project, to provide guidance and training on labor-intensive schemes in
municipal infrastructure, including guidance for contracts management and monitoring to ensure
criteria and requirements under innovation fund sub-component are met.
47. Project Operations Manual and other Project supporting documents: The ESSRP
POM will be updated to reflect the changes in MSSRP. The revised POM for MSSRP will reflect
the institutional arrangements and revisions in the project description, including indicators, sub-
project appraisal and selection criteria, scope of eligible activities, etc. The POM will include
mechanisms to ensure the participation of women and youth in decision making processes, needs
assessments and monitoring processes as well as specific criteria related to identification and
support to sub-projects that specifically target female beneficiaries. It will also include processes
and criteria for selecting sub-projects with labor-intensive works. Elements of the Environmental
and Social Management Framework (ESMF) and the Resettlement Policy Framework (RPF) were
also revisited to confirm the social and environmental safeguards policies applicable, including
ensuring laborer safety and protection measures.
48. Reporting and Monitoring Requirements: The PMU would be expected to submit to the
World Bank semi-annual progress reports. The technical audit Terms of Reference would be
expanded to cover progress in the implementation of the Innovation Fund, to review contract
cycles for selected sub-projects, and to assess the degree to which sub-projects are operational.
Spot audits would also look at the soundness of the application of job creation schemes. The
15
technical audits would be carried out on a semi-annual basis. Additional indicators (as proposed
in the paper) would be included in the Results Framework to track progress and achievements
under the project, in light of shifting focus towards deepening of institutional capacities and
strengthened processes of sub-project selection and implementation. The PMU will provide an
update on the tracking of the Results Framework to the Bank and funding partners, on a quarterly
basis. Beneficiary Impact assessments will also be carried out once during the mid-term life of the
project and once at completion, to assess the Theory of Change assumptions and their related social
indicators on the participation and satisfaction of the host communities and Syrians, represented
by the different segments targeted under the scaled-up operation. Participatory M&E tools,
including community/citizen score cards will be used on a regular basis to assess citizens’ feedback
on project investment. A series of experiential indicators that measure social cohesion and
resilience will be introduced through YM and evaluation of the project. Other opportunities will
also be sought to capture social cohesion and trust building aspects of the project.
49. Financial Management: The financial management risk assessment originally conducted
in 2014 was updated in the light of the overall financial management performance during the past
years. The overall residual FM risk is rated as ‘Moderate’.
50. The proposed second AF will follow the FM and disbursement arrangements of the ESSRP,
including:
i) MoMA being responsible for overall coordination and monitoring of the project.
CVDB will manage the FM and disbursement functions, and the PMs will manage
fiduciary aspects related to its Municipal Grants and innovative funds;
ii) The current Financial Officer of ESSRP will continue his FM and disbursement
responsibilities under the MSSRP, supported by two additional field-based
accountants;
iii) Retaining the same FM sections of the PoM developed for the parent project;
iv) Following Report-based disbursement arrangements, grant funds will be transferred to
municipalities in different phases subject to complying to the disbursement conditions
as spelled out in the project PoM;
v) The documentation will be recognized on the basis of the actual expenditures incurred
against the project activities. The transfers made and the outstanding advances at the
sub-project level will be reconciled with the Interim Financial Reports (IFR)s;
vi) The documentation and eligibility of expenditure of the IF sub-window will follow the
same of the Municipal Grants component. Details will be elaborated in the PoM;
vii) Using a US Dollar Designated Account (DA) to be managed by CVDB, while sub-
accounts in local currency will be used by each PM at CVDB for receiving the
Municipal Grants;
viii) Quarterly IFRs will be required for submission to the World Bank;
ix) Technical audits will be performed semiannually while, financial audited will be
conducted annually.
51. The most recent project FM performance was rated as “Satisfactory” owning to the fact
that the FM arrangements are performed in a satisfactory manner.
16
52. Procurement: The parent project has already processed a first AF, following the new
World Bank procurement framework of works. For this second AF, the project will continue using
the new regulations, and all goods, works and consulting services required for the project and to
be financed out of the proceeds of the proposed second Additional Financing of the Grant shall be
procured in accordance with the requirements set forth or referred to in the “World Bank
Procurement Regulations for Borrowers under Investment Project Financing” dated July 1, 2016
(“Procurement Regulations”), and the provisions of the Recipient’s procurement plan for the
project (“Procurement Plan”) dated May 15, 2017 provided for under Section IV of the
Procurement Regulations, as the same may be updated from time to time in agreement with the
World Bank. For that purpose, the project shall be mandated to use the Systematic Tracking of
Exchanges of Procurement (STEP). The second AF is assessed to be of a ‘Moderate’ risk and thus
the following Prior Review thresholds shall be observed: (i) Works above US$15 million (each),
(ii) Goods above US$4 million (each), (iii) Consulting services above US$2 million (each) and
individual consultants above US$0.4 million (each). Some weaknesses were identified in the
procurement implementation of the current project and these have been reflected in the Project
Procurement Strategy Development (PPSD). The Recipient shall ensure that the Project is carried
out in accordance with the provisions of the “Guidelines on Preventing and Combating Fraud and
Corruption in Projects Financed by the International Bank for Reconstruction and Development
(IBRD) Loans and the International Development Association (IDA) Credits and Grants”, dated
October 15, 2006 and revised in January 2011 and as of July 1, 2016 (“Anti-Corruption
Guidelines”).
53. Social and Environmental Safeguards: The MSSRP environmental category continues
to be category ‘B’, and in accordance with the World Bank’s Operational Policy OP 4.01. This
category is justified as the list of eligible sub-projects would include small scale interventions that
would cause minor, if any, potential negative environmental impacts, which can be mitigated
through the implementation of the mitigation measures which are suggested in the ESMF.
54. No permanent or temporary land acquisition using the principle of eminent domain is
expected. Land requirements, if any, are expected to be small scale in nature and sub-project
investments will be carried out only on municipally owned land (or other Government owned
land). A Resettlement Policy Framework was updated and publicly disclosed on May 9, 2017,
building on the ESSRP experience as a precautionary measure in the unlikely situation that
squatters and/or encumbrances are found on government land used for the second AF. In such an
event, Resettlement Action Plans will be prepared to address any adverse impacts that may arise
as per OP 4.12. The client is familiar with the provisions of the Bank's social safeguards policies
and thorough documentation on sub-project screening and land ownership were further
emphasized. After the consultation with the project’s stakeholders, the ESMF was publicly
disclosed in country on May 8, 2017 following the disclosure on the World Bank website on May
9, 2017.
55. Risk Rating: Overall Risk Rating is ‘Substantial’. Some of the risk ratings have been
revised to be aligned with the risk ratings of the Country Partnership Framework (CPF) (Report
No. 102746-JO, discussed by the Board of the Executive Directors on July 14, 2016). An
explanation of key risks that are either Substantial or High is provided below: Macroeconomic risk
is Substantial. As explained in the CPF, Jordan will need to continue managing repercussions from
17
the regional situation, and the challenges of the Syrian refugee influx. The volatility of the region
and Jordan’s high degree of integration with its neighbors remain a major risk to the country, and
by extension to this project. In particular, the risk framework includes under ‘other’ the high risk
associated with the country’s geographic and regional context. The worsening of the Syria conflict,
ongoing violence in Iraq, and escalating tensions between the region’s major powers are all
compounding the risks to Jordan in terms of potential destabilizing impact and toll on the economy
Additionally, persistently low oil prices are a risk for Jordan in the short and the medium term, as
Jordan benefits from the Gulf Cooperation Council for remittances, exports, foreign direct
investment and grants which constitute large sources of foreign exchange. Fiscal adjustment
measures to contain the fiscal deficit and high debt-to-GDP ratio are likely to be difficult to
implement given the population’s sensitivity to fiscal adjustment measures already taken. A
rebound in global oil prices would negatively affect fiscal consolidation efforts (unless remedial
reforms, such as an automatic electricity tariff adjustment mechanism, are implemented).
Furthermore, the willingness and speed of reform implementation, particularly to improve the
business climate, will be crucial to attract the investment Jordan aspires for. Finally, Jordan
remains vulnerable to uncertain grant inflows that support its fiscal and current account position.
Particularly for the proposed MSSRP, With the uncertainty in the regional stability comes
uncertainty with future disbursements of committed donor funds. In addition, the institutional
capacity risk has been raised to Substantial since the proposed second AF entails the introduction
of new financing mechanisms and partnerships, which will place an additional burden on the
implementing agencies. All of these factors could indirectly affect project implementation.
56. The institutional capacity risk has been raised to ‘Substantial’ since the second AF entails
the introduction of new financing mechanisms and partnership with a larger number of
implementing agencies, which will place an additional burden on the implementing agencies.
III. PROPOSED CHANGES
Summary of Proposed Changes
The second AF will continue to support the delivery of municipal services in communities that are hosting
large numbers of Syrian refugees. The proposed new phase will: (i) expand the parent project's coverage to
include other highly-stressed municipalities, to respond to social cohesion stresses as well as core service
deficiencies; (ii) place additional focus on deepening municipal capacity strengthening efforts to achieve
more sustainable, transparent and accountable service delivery; and (iii) introduce a new sub-window for
project-based Innovation Fund financing under Component 1: Municipal Grants, to place greater emphasis
on financing activities that create job opportunities for Jordanians and Syrians and that contribute to longer-
term development through partnerships with NGOs and private sector. To better reflect this developmental
approach and added emphasis on enhancing the quality of service delivery and its impact on longer-term
development, it is proposed to change the title of the parent project from Emergency Services and Social
Resilience Project (ESSRP) to Municipal Services and Social Resilience Project (MSSRP), and to
reformulate the PDO.
Change in Implementing Agency Yes [ ] No [ X ]
Change in Project's Development Objectives Yes [ X ] No [ ]
18
Change in Results Framework Yes [ X ] No [ ]
Change in Safeguard Policies Triggered Yes [ ] No [ X ]
Change of EA category Yes [ ] No [ X ]
Other Changes to Safeguards Yes [ ] No [ X ]
Change in Legal Covenants Yes [ ] No [ X ]
Change in Loan Closing Date(s) Yes [ ] No [ X ]
Cancellations Proposed Yes [ ] No [ X ]
Change in Disbursement Arrangements Yes [ ] No [ X ]
Reallocation between Disbursement Categories Yes [ ] No [ X ]
Change in Disbursement Estimates Yes [ X ] No [ ]
Change to Components and Cost Yes [ X ] No [ ]
Change in Institutional Arrangements Yes [ ] No [ X ]
Change in Financial Management Yes [ ] No [ X ]
Change in Procurement Yes [ ] No [ X ]
Change in Implementation Schedule Yes [ X ] No [ ]
Other Change(s) Yes [ ] No [ X ]
Development Objective/Results PHHHDO
Project’s Development Objectives
Original PDO
The project development objective is to help Jordanian municipalities and host communities address the
immediate service delivery impacts of Syrian refugee inflows and strengthen municipal capacity to support
local economic development.
Change in Project's Development Objectives PHHCPDO
Explanation:
The second AF will continue to support municipalities and host communities address the impact of the
Syrian crisis and to enhance the capacity of municipalities for local development. However, the scope of
the parent project will be expanded to include an explicit focus on access to jobs for Jordanians and
Syrians, on investments that are more directly linked to improvements in access to basic services and living
conditions, and to better targeting and integration of females and youth in local decision making and as
beneficiaries of municipal services. The AF will also have a larger focus on supporting municipal capacity
to improve the sustainability and accountability of their service delivery systems.
Proposed New PDO - Additional Financing (AF)
The objective of the MSSRP is to support Jordanian municipalities affected by the influx of Syrian
refugees in delivering services and employment opportunities for Jordanians and Syrians.
Change in Results Framework PHHCRF
Explanation:
19
The project's results framework is revised to include indicators that are linked to the additional focus on
creating employment opportunities for Jordanians and Syrians, enhancing municipal capacity for improved
service delivery and accountability towards host communities with a particular focus on women and youth.
Compliance PHHHCompl
Covenants - Additional Financing ( Municipal Services and Social Resilience Project - P161982 )
Source of
Funds
Finance
Agreement
Reference
Description of
Covenants Date Due Recurrent Frequency Action
MNAF
Schedule 2
Section I A. 1
Steering
Committee
The Recipient
shall establish
and thereafter
maintain,
throughout
Project
implementation,
a steering
committee with
composition,
functions and
resources
satisfactory to the
World Bank
(“Steering
Committee”), to
be responsible
for providing
strategic
direction and
exercise overall
coordination and
oversight of the
Project at the
national level, as
further set forth
in the POM.
CONTINU
OUS New
MNAF
Schedule 2
Section I A. 2.
(a) Project
Management
Unit
The Recipient
shall maintain,
throughout
Project
implementation,
a Project
management unit
with staff in
adequate number,
CONTINU
OUS New
20
with terms of
reference and
qualifications,
and resources
satisfactory to the
World Bank
(“Project
Management
Unit”), all as
further set forth
in the POM.
MNAF
Schedule 2
Section I A. 2.
(b) Project
Management
Unit
To this end, the
Project
Management
Unit shall be
vested with
responsibilities
for overall
Project
coordination,
management and
reporting,
including: (i)
providing
support to the
Steering
Committee and
overseeing
planning and
supervision of
Project activities;
(ii) coordinating
with other donor-
financed
municipal
programs; and
(iii) monitoring
and evaluating
Project
implementation,
including the
preparation of
Project progress
reports, all as
further set forth
in the POM.
CONTINU
OUS New
21
MNAF
Schedule 2
Section I B. 1
CVDB (a)
The Recipient
shall update and
thereafter
maintain the
Management
Contract with
CVDB under
terms and
conditions
approved by the
World Bank
(“Management
Contract”) and
thereafter
provide all
assistance
necessary to
CVDB for
CVDB to
discharge its role
in the Project in
handling
fiduciary aspects
of the Project as
further described
in the POM.
CONTINU
OUS New
MNAF
Schedule 2
Section I B. 1
CVDB (b)
Without
limitation to the
provisions of Part
B.1(a) of this
Section, the
Recipient shall
cause CVDB to
maintain staff in
number and with
qualifications,
experience and
terms of
reference
satisfactory to the
World Bank.
CONTINU
OUS New
MNAF
Schedule 2
Section I B. 1
CVDB (c)
The Recipient
shall ensure that,
throughout
Project
CONTINU
OUS New
22
implementation,
CVDB is
responsible for
providing: (i)
fiduciary support
to the Project,
including annual
financial and
technical audits;
and (ii) Project
safeguards
monitoring and
oversight, all as
further set forth
in the POM.
MNAF
Schedule 2
Section I B. 1
CVDB (d)
The Recipient
shall exercise its
rights under the
Management
Contract in such
manner as to
protect the
interests of the
Recipient and the
World Bank and
to accomplish the
purposes of the
Grant. Except as
the World Bank
shall otherwise
agree, the
Recipient shall
not amend,
abrogate or
waive the
Management
Contract or any
of its provisions.
CONTINU
OUS New
MNAF
Schedule 2
Section I B. 2
Participating
Municipalities
The Recipient
shall ensure, in
close
collaboration
with the
beneficiary
communities,
CONTINU
OUS New
23
that each
Participating
Municipality is
responsible for
the identification
and delivery of
priority
infrastructure and
services to be
financed through
the Sub-projects.
MNAF
Schedule 2
Section I D. 1
Project
Operations
Manual
The Recipient
shall, by no later
than February 28,
2018, revise and
update, in
accordance with
terms of
reference
acceptable to the
World Bank, the
Project manual,
containing
detailed
arrangements and
procedures for
implementation
of the Project.
28-Feb-
2018 New
Conditions
PHCondTbl
Source Of Fund Name Type
MNAF Article V 5.01 a) of Grant
Agreement
Effectiveness
Description of Condition
The Steering Committee referred in Section I.A.1 has been established by the Recipient.
PHCondTbl
Source Of Fund Name Type
MNAF Article V 5.01 b) of Grant
Agreement
Effectiveness
Description of Condition
The Recipient has contracted an agency, acceptable to the World Bank, and under terms of
reference satisfactory to the World Bank, to: (a) develop guidelines and specifications on labor
based methodologies for different categories of works; (b) provide capacity building for the
Recipient and PMs and technical support on labor-based technology during implementation of
24
works; and (c) monitor progress in achieving the objective of the labor-intensive activities.
Risk PHHHRISKS
Risk Category Rating (H, S, M, L)
1. Political and Governance Moderate
2. Macroeconomic Substantial
3. Sector Strategies and Policies Moderate
4. Technical Design of Project or Program Moderate
5. Institutional Capacity for Implementation and Sustainability Substantial
6. Fiduciary Moderate
7. Environment and Social Moderate
8. Stakeholders Moderate
9. Other High
OVERALL Substantial
Finance PHHHFin
Loan Closing Date - Additional Financing ( Municipal Services and Social Resilience
Project - P161982 )
Source of Funds Proposed Additional Financing Loan Closing Date
MNA VPU Free-standing Trust Funds 31-Dec-2020
Change in Disbursement Estimates (including all sources of Financing)PHHCDE
Explanation:
The estimates are adjusted due to additional funds received.
Expected Disbursements (in USD Million)(including all Sources of Financing)
Fiscal Year 2018 2019 2020 2021 2022 2023 2024 2025 2026 2027
Annual 12.30 10.30 4.40 3.00 0.00 0.00 0.00 0.00 0.00 0.00
Cumulative 12.30 22.60 27.00 30.00 0.00 0.00 0.00 0.00 0.00 0.00
Allocations - Additional Financing ( Municipal Services and Social Resilience Project -
P161982 )
Source of
Fund Currency
Category of
Expenditure
Allocation Disbursement %(Type
Total)
Proposed Proposed
MNAF USD Part I - Goods, works,
consulting services 27.00 100.00
MNAF USD
Part II - Goods,
consulting services,
operating costs, and
training
3.00 100.00
25
Total: 30.00
Components PHHHCompo
Change to Components and Cost PHHCCC
Explanation:
Categories would remain the same, but allocations increased to reflect additional financing.
Current Component
Name
Proposed Component
Name
Current Cost
(US$M)
Proposed
Cost (US$M) Action
Municipal Grants Municipal Grants 61.20 88.20 Revised
Institutional
Development and
Project Management
Institutional Support and
Project Management 2.30 5.30 Revised
Total: 63.50 93.50
Other Change(s) PHHHOthC PHImplemeDel
Implementing Agency Name Type Action
Ministry of Municipal Affairs Implementing Agency No Change
Change in Implementation Schedule PHHCISch
Explanation:
The Implementation Schedule will be revised taking into account a three-year extension.
Appraisal Summary PHHHAppS
Economic and Financial Analysis PHHASEFA
Explanation:
The project has several potential benefits which justify the investments in service delivery and
employment generation through labor intensive works. Tangible benefits are the investments by
municipalities in local infrastructure and services and improvements in processes of service delivery
including enhanced consultative and participatory processes for decision making and improved capacity
for strategic planning and decision making.
The types of public infrastructure that may be created under Component 1 are likely to yield a higher rate
of return (production efficiencies) than those under alternative arrangements (through central agencies or
NGOs). The decisions taken by local governments are also likely to better reflect the local preferences
identified through a local planning process (allocative efficiencies). In addition, the sub-projects to be
financed by the ‘innovation fund’ under Component 1 are likely to encourage activities that are
collaboratively implemented by more than one municipality and/or in partnership with private
sector/NGOs (resource efficiency).
The team will also undertake a cost-benefit analysis of investments made to date during early
26
implementation of MSSRP, with a view to enhance the efficiency and sustainability of investments made.
Technical Analysis PHHASTA
Explanation:
The investments financed under component 1 would consist of rehabilitation and maintenance of roads and
basic infrastructure, minor rehabilitation of public buildings and town centers, cleaning, painting,
rehabilitation of parks, public libraries, cleaning campaigns in vegetable markets, upgrading of water
drainage systems, pavements and sidewalks, minor improvements to public facilities including school
playgrounds and sanitary units, community centers, covers and shades for public yards and playgrounds,
facilities and equipment for solid waste management, etc. The processes outlined in the PoM will ensure
that these investments have been selected strategically and are in line with municipality’s development
planning. It will also be ensured that these investments are accompanied with operations and maintenance
plans, in order to ensure their sustainability. The IF sub-window has been designed as a two-phase process,
where on selection in the first phase, the municipality will be eligible to access capacity building grant that
would enable them to make the investment planning and design technically sound.
The proposed second AF will draw on lessons learnt from technical audits performed over the course of
parent project implementation to ensure that quality of investments, particularly for basic infrastructure,
are closely monitored. Accordingly, during early implementation, the project will undertake an analysis of
quality of investment planning and implementation through a study of sample municipalities. In addition,
third party monitoring by youth of labor-intensive works will also ensure that employment generation
targets are also being reached.
Social Analysis PHHASSA
Explanation:
The proposed second AF aims to mitigating risks to social cohesion through responding to drivers of social
tensions by : i) enhancing confidence in local government through improved service delivery and ii)
ensuring inclusive decision making processes. With this in mind, the investments made under the project
are likely to bring about positive social impacts. For example, investments in public spaces that enhances
chances of community interaction and cohesion will be encouraged. In addition, the second AF will also
encourage investments targeted at women and youth. This will be a specific criteria for project selection
under innovation fund sub-component.
The second AF anticipates only positive social impacts through community service delivery and other
services. No adverse impacts (such as relocation of households; adverse impacts on
incomes/livelihoods/businesses; or any restriction of access to natural resources) are anticipated under this
project.
Environmental Analysis PHHASEnvA
Explanation:
The sub-projects of the MSSRP are likely to result in a number of positive environmental and socio-
economic impacts. Nevertheless, to ensure that the second AF will support interventions that do not have
any significant impacts, an environmental and social safeguards screening tool is included in the ESMF,
with provisions for rejecting any sub-projects that would have significant negative environmental or social
impact. The existing, well established mechanisms and procedures that MoMA/CVDB developed under
the ESSRP at municipality and central levels will be used for implementing the MSSRP’s ESMF. After
27
screening each sub-project and based on the sub-project’s type, the proper environmental assessment tool
i.e. checklist, ESMF would be applied and in accordance with OP. 4.01. MoMA/CVDB focal points at
municipal level will be tasked with the on-site monitoring and reporting supported by the PMU at central
level, to ensure proper implementation of the mitigation measures required by the ESMF.
Risk PHHASRisk
Explanation:
Some of the risk ratings have been revised to be aligned with the risk ratings of the Country Partnership
Framework (Report No. 102746-JO) discussed by the Board of the Executive Directors on July 14, 2016.
In particular, the risk framework includes under 'other' the high risk associated with the country's
geographic and regional context. In addition, the institutional capacity risk has been raised to Substantial
since the AF entails the introduction of new financing mechanisms and partnership with a larger number of
implementing agencies, which will place an additional burden on the implementing agencies.
IV. WORLD BANK GRIEVANCE REDRESS
57. Communities and individuals who believe that they are adversely affected by a World Bank
(WB) supported project may submit complaints to existing project-level grievance redress
mechanisms or the WB’s Grievance Redress Service (GRS). The GRS ensures that complaints
received are promptly reviewed in order to address project-related concerns. Project affected
communities and individuals may submit their complaint to the WB’s independent Inspection
Panel which determines whether harm occurred, or could occur, as a result of WB non-compliance
with its policies and procedures. Complaints may be submitted at any time after concerns have
been brought directly to the World Bank's attention, and Bank Management has been given an
opportunity to respond. For information on how to submit complaints to the World Bank’s
corporate Grievance Redress Service (GRS), please visit http://www.worldbank.org/GRS. For
information on how to submit complaints to the World Bank Inspection Panel, please visit
www.inspectionpanel.org.
28
ANNEX I: RESULTS FRAMEWORK AND MONITORING
Project
Name: Municipal Services and Social Resilience Project (P161982)
Project
Stage: Additional Financing Status: Final
Team
Leader(s)
:
Lina Abdallah Saeed Abdallah Requesting
Unit: MNC02
Product
Line: Recipient Executed Activities
Responsible
Unit: GSU05
Country: Jordan Approval FY: 2018
Region: MIDDLE EAST AND NORTH
AFRICA
Financing
Instrument: Investment Project Financing
Parent Project
ID: P147689
Parent Project
Name: Jordan- Emergency Services and Social Resilience (P147689)
.
Project Development Objectives
Original Project Development Objective - Parent:
The project development objective is to help Jordanian municipalities and host communities address the immediate service delivery impacts of
Syrian refugee inflows and strengthen municipal capacity to support local economic development.
Proposed Project Development Objective - Additional Financing (AF):
The objective of the MSSRP is to support Jordanian municipalities affected by the influx of Syrian refugees in delivering services and employment
opportunities for Jordanians and Syrians.
Results
Core sector indicators are considered: Yes Results reporting level: Project Level .
Project Development Objective Indicators
Status Indicator Name Corpor
ate Unit of Measure Baseline Actual(Current) End Target
29
Revised Direct project beneficiaries
Number Value 0.00 2036204.00 3000000.00
Date 01-Jan-2014 31-Dec-2016 31-Dec-2020
Comment
New of which Syrians
Percentage Value 0.00 12.4 20.00
Sub Type
Supplemental
Marked for
Deletion
Beneficiaries provided with
access to basic services of
which are women
Number Value 0.00 916291.80 1800000.00
Sub Type
Supplemental
Revised Female beneficiaries
Percentage Value 0.00 45.00 47.00
Sub Type
Supplemental
Marked for
Deletion
Conflict affected people
receiving benefits in 1st year of
project effectiveness
Number Value 0.00 220830.00 215215.00
Date 01-Jan-2014 31-Dec-2015 30-Dec-2016
Comment
Marked for
Deletion
Conflict affected people
receiving benefits in 1st year of
project effectiveness of which
female
Number Value 0.00 852296.00 245250.00
Sub Type Date 01-Jan-2014 31-Dec-2015 30-Dec-2016
Breakdown Comment
New Percentage of beneficiaries
satisfied with the project’s
investments in service delivery,
based on independent
monitoring.
Percentage Value 0.00 0.00 60.00
Date 21-Nov-2016 21-Nov-2017 31-Dec-2020
Comment
New Percent of Syrian beneficiaries
satisfied with the Project’s
investments in service delivery,
based on independent
monitoring
Percentage Value 0.00 0.00 60.00
Date 21-Nov-2017 21-Nov-2017 31-Dec-2020
Comment
Marked for Participating municipalities Percentage Value 0.00 100.00 100.00
30
Deletion ensuring pre-crisis levels of per
capita investments in at least 2
of the following: (i) solid
waste; (ii) local roads; (iii)
street cleaning; (iv) parks (v)
community ser
Date 01-Jan-2014 31-Dec-2015 31-Dec-2017
Comment
Marked for
Deletion
Participating municipalities
implement/facilitate at least
two priority local economic
development subprojects
identified in local economic
development plans
Percentage Value 0.00 50.00 75.00
Date 16-Oct-2013 31-Dec-2015 31-Dec-2017
Comment
New Number of working days
created under MSSRP
Number Value 0.00 0.00 110000.00
Date 21-Nov-2017 21-Nov-2017 31-Dec-2020
Comment
Marked for
Deletion
Participating municipalities
clearing annual financial and
technical audits without
adverse opinion
Percentage Value 0.00 100.00 100.00
Date 16-Oct-2013 31-Dec-2015 31-Dec-2017
Comment
Intermediate Results Indicators
Status Indicator Name Corpor
ate Unit of Measure Baseline Actual(Current) End Target
Marked for
Deletion
Participating municipalities
spending at least 75 percent of
their Municipal Grant each
year
Percentage Value 0.00 100.00 100.00
Date 01-Jan-2014 30-Dec-2016 30-Dec-2016
Comment
Marked for
Deletion
Participating municipalities
with service delivery needs
assessments completed in
participatory manner.
Percentage Value 0.00 100.00 100.00
Date 01-Jan-2014 30-Dec-2016 31-Dec-2017
Comment
New Beneficiaries that feel
investments under MSSRP
reflected their needs
Percentage Value 36.00 34.00 50.00
Date 30-Dec-2016 21-Nov-2017 31-Dec-2020
Comment This is based Average
31
on findings of
independent
monitoring
report.
extrapolated from
the initial results
of the ESSRP
End Line Survey.
Marked for
Deletion
Priority service delivery/
community infrastructure
projects implemented by
participating municipalities
Number Value 0.00 315.00 120.00
Date 01-Jan-2014 01-Mar-2017 31-Dec-2017
Comment
New Percentage of beneficiaries
who are satisfied with the
performance of their respective
participating municipalities in
addressing their needs through
MSSRP
Percentage Value 30.00 0.00 60.00
Date 30-Nov-2016 21-Nov-2017 31-Dec-2020
Comment
Marked for
Deletion
Participating municipalities
with local development plans
updated/completed in
participatory manner.
Percentage Value 0.00 100.00 100.00
Date 01-Jan-2014 30-Dec-2016 31-Dec-2017
Comment
New Perception on MSSRP
contributions to social cohesion
improve.
Yes/No Value No No Yes
Date 21-Nov-2017 21-Nov-2017 31-Dec-2020
Comment
New Improved access to service
delivery in host communities in
the project area
Text Value 0 0 Text
Date 21-Nov-2017 21-Nov-2017 30-Nov-2020
Comment
Marked for
Deletion
Participating municipalities
that publicly disclose project
budgets and audit results
Percentage Value 0.00 100.00 75.00
Date 01-Jan-2014 31-Dec-2016 31-Dec-2017
Comment
Marked for
Deletion
Participating municipalities and
governorates having
emergency management plans
Percentage Value 0.00 10.00 75.00
Date 01-Jan-2014 30-Dec-2016 31-Dec-2017
Comment
New Participating Municipalities Percentage Value 0.00 0.00 20.00
32
with Action Plans for gender
mainstreaming linked to sub-
projects in service delivery.
Date 21-Nov-2017 21-Nov-2017 31-Dec-2020
Comment
Marked for
Deletion
Key staff in participating
municipalities and
governorates trained on
emergency preparedness
procedures
Number Value 0.00 150.00 40.00
Date 01-Jan-2014 31-Dec-2015 31-Dec-2017
Comment
Marked for
Deletion
Beneficiaries that feel project
investments reflected their
needs, of which women
Percentage Value 0.00 48.00 50.00
Sub Type
Supplemental
New Share of Municipal Grants and
Innovation Fund grants
allocations to projects targeting
females and youth as direct
beneficiaries.
Percentage Value 0.00 30.00
Date 20-Nov-2017 31-Dec-2020
Comment Data has not
been collected.
This is a new
indicator to be
tracked
following
effectiveness.
New Share of innovation fund grants
to sub-projects targeting
females and youth as direct
beneficiaries.
Percentage Value 0.00 0.00 60.00
Date 20-Nov-2017 20-Nov-2017 31-Dec-2020
Comment
New Participating Municipalities
utilizing citizen feedback tools
Number Value 0.00 0.00 21.00
Date 21-Nov-2017 21-Nov-2017 31-Dec-2020
Comment
New Participating municipalities
that publicly disclose sub-
project budgets and audit
results
Number Value 0.00 16.00 26.00
Date 21-Nov-2017 21-Nov-2017 31-Dec-2020
Comment According to the
PMU reporting,
100% of
The end target is
revised from
75% to 100%
33
participating
municipalities
met this target.
New Participating municipalities
clearing annual financial and
technical audits without
adverse opinion
Percentage Value 0.00 100.00 100.00
Date 17-Nov-2014 21-Nov-2017 31-Dec-2020
Comment According to the
ESSRP Annual
Progress Report
for 2016, all
participating
municipalities
cleared annual
financial and
technical audits
without adverse
opinion.
New Participating municipalities
that are able to link their
strategic plans to service
delivery sub-projects by year 2
of project implementation
Number Value 0.00 0.00 10.00
Date 21-Nov-2017 21-Nov-2017 31-Dec-2020
Comment
.
34
ANNEX II: PROCUREMENT ASSESSMENT AND MITIGATION MEASURES
Client Capability and PMU Assessment
1. Experience: The project is being implemented by the MoMA and CVDB who built a good
experience during the implementation of the original project. Also, it is found that the project is
observing satisfactory level of internal coordination and procurement planning, resulting in
consolidation of information and governance of the municipalities which are in charge of contract
management even when CVDB is procuring the contractors centrally. Bidding process and
evaluation were found in general acceptable, and in compliance with the Bank’s procurement
guidelines as well as the physical inspection was generally satisfactory.
Procurement Assessment and Mitigation Measures
2. Procurement assessment is built on the demonstrated capacity in implementing the original
project. CVDB team defined the main procurement shortcomings of implementation. The below
summarizes the proposed mitigations to reduce or eliminate identified risks:
a. Planning: Through improved planning processes, municipalities should coordinate
closely in particular with the Water Authority.
b. Inventory and asset management: Municipalities need capacity building in asset
management to better track their investments and anticipate operationalization and
maintenance costs based on life-cycle usage. It is expected that such capacity building
support will be provided through the USAID-Funded CITIES project.
Overall assessment rating
3. Due to the nature and simplicity of the remaining procurement activities the
procurement risk can be considered as “Moderate” provided that identified shortcomings are
mitigated by an efficient planning between MoMA and relevant authorities, initiation of inventory
and asset management through CITIES USAID-financed project, increased efficient procurement
processing through (i) hands-on training by CVDB’s seasoned staff and additional staff, (ii) full
compliance at the level of municipalities of record-keeping, (iii) decrease of re-bidding occurrences,
and finally quality contract management through quality assurance of proposals, design and
supervision.
Market Analysis
4. The project identified the current procurement implementation weakness and was in the
Project Procurement Strategy Development (PPSD); the below are highlights on the strategy
assessment.
35
Works
5. Based on the project lengthy experience and testing of the market, and using the project
areas of interventions, overall competition and availability of contractors are ensured. The analysis
of the market is based on sample of 60 percent of all the project contracts. For 7 project regions, 113
contractors are in the market, and interested to apply to the project. The large majority of the project
contractors are eligible for JD750,000 (category 4) contract value of building and JD500,000
(category 3) of asphalting. This aligns with the average of sub-project packages at CVDB
centralized level. Procurement launched at the municipal level will be contracting category 5
building contractors (JD250,000) and category 5 opening roads contractors (JD250,000). While in
the building works, 89 percent of the contractors operate in only one region, 54 percent of the
asphalting contractors are operating in one region while the rest are awarded in 2 up to 5 different
regions. On the basis of the needed contracting equipment of both kind of interventions, the above
conclusions are satisfactory with respect to competition, fairness, and market healthiness.
Consulting firms
6. The project does not presently foresee contracting consulting firms, except an external audit
and other simple technical assistance.
Equipment
7. The project tested multiple implementation scenarios of purchasing large vehicles. CVDB
launched international competitive bidding to purchase compactors for different municipalities.
Vehicles’ suppliers are rather limited, which is a common phenomenon in the region in the vehicles
sector. The wide, yet oligopoly-scheme gives room for sufficient competition, but hinders from a
full fledge competition. In addition, the maintenance dimension and harmonization of spare parts
requirement, tends to encourage using the same suppliers that are already provisioning
municipalities. After the lengthy procedures in purchasing centrally the compactors, the ministry
ordered to have the equipment purchased locally at the level of each municipality even if the
economy of scale is to be not respected. That experience also failed to secure good bidding
processing, and appropriate contract management. It was agreed thereafter, that CVDB will take
over again the purchase of vehicles and will allocate resources to solid specifications. On a sample
of 60 percent of equipment, a number of suppliers per type of equipment is identified, noting that
the same supplier is identified for multiple items, reducing the competition by a 34 percent
parameter.
Recommended Procurement Approach for the Project
8. The project has already processed a first AF that is to follow the new World Bank
procurement framework of works. For this second AF, the project will continue using the new
regulations, and all goods, works, and consulting services required for the Project and to be
financed out of the proceeds of the Additional Financing of Grant shall be procured in accordance
with the requirements set forth or referred to in the “World Bank Procurement Regulations for
36
Borrowers under Investment Project Financing” dated July 1, 2016 (“Procurement Regulations”),
and the provisions of the Recipient’s procurement plan for the Project (“Procurement Plan”) dated
May 15, 2017 provided for under Section IV of the Procurement Regulations, as the same may be
updated from time to time in agreement with the World Bank.
9. Considering that the Project is a continuation of the previous Project, and includes regular
works and goods procurement, to ensure smooth implementation and transition from old Guidelines
to new Procurement regulations, the similar procurement methods offered under the new
regulations will be used by the implementing agency as agreed under the Procurement Plan as per
below:
Selection methods and arrangements
• Works: The project is expected to use: (i) Request for Bids (RFB) from national markets
(replacing the old NCB), (ii) framework agreements for routine maintenance contracts, (iii) Request
for quotations (or Shopping), as well as (iv) Direct Selection (old Direct contracting).
• Goods: The project is expected to purchase equipment using: (i) Request for Bids (RFB) for
both international (replacing ICB) and national markets (replacing NCB), (ii) Request for
quotations (or Shopping); and (iii) Direct selection (old Direct contracting).
• Consulting Services: the project is expected to use request for proposals with the following
methods (i) Quality Cost-Based Selection (QCBS), (ii) Fixed Budget-based Selection (FBS); (iii)
Least Cost-based Selection (LCS); (iv) Consultants’ Qualification-based Selection (CQS); (v)
Direct Selection (old single sourcing); and (vi) Selection of Individual Consultants.
• Particular emphasis of the Procurement Regulations Section III paragraph 3.23- Eligibility:
The borrower will need to get the clearance of the Bank prior to entering into a contract with a state-
owned enterprise, government officials, or civil servants of Jordan.
STEP
10. The Procurement Plan for the life of the Second Additional Financing will be developed by
the government through STEP. It defines the market approach options, the selection methods and
contractual arrangements, and determines the WB’s reviews. The initial procurement plan will be
attached to the legal agreement.
Prior Review threshold
11. Based on the satisfactory assessment, the project shall be subject to ‘moderate’ risk prior
review threshold, making the project mostly subject to post review.
37
ANNEX III: COMPONENT 1: MUNICIPAL GRANTS
1. This component will provide discretionary Municipal Grants to municipalities that are
hosting the largest concentration of Syrians (i.e., weighting the number of Syrians hosted and their
ratio to host population), using 2015 Census data. The objective is to provide funding to
municipalities for service delivery in an efficient, responsive and sustainable manner that promotes
longer-term resilience and mitigates risks to social cohesion at local levels, while filling critical
service delivery gaps.
2. In line with the theory of change, the component attempts to mitigate risks to vertical and
horizontal social cohesion by responding to drivers of social tensions and strengthening the
resilience of municipalities, host communities and refugees. To this end, the design of the
component has been guided by the following assumptions and observations:
• Medium-to-long term development planning through predictable funding: Substantial
increase in populations due to refugee influx puts pressure on already strained services in
municipalities receiving very high proportions of refugees in northern Jordan. While short term
emergency measures are necessary to immediately fill some of the service gaps, it is certainly not
sufficient. For municipalities that were underserved with years of under-investment in urban
services, even before the Syrian crisis, predictability of funding over three years (project cycle)
will allow to take a medium-to-long term development approach with a possibility of multi-year
planning, accounting for capital investments in a phased manner as well as integrating operations
and maintenance of investments, leading to longer term sustainability of these investments.
• Sustainability through alignment with strategic planning process: Many PMs in northern
Jordan are experiencing growth and expansion of existing areas, due to refugee influx. Much of
this growth is informal and/or haphazard. There is a need to align investments to the existing
development and strategic planning processes implemented by the municipalities, for promoting
orderly planning and development. Instead of ad-hoc or one off investments, strategic planning
and decision making will allow PMs to create a pipeline of priority investments that addresses
their changing needs over a longer period. The strategic plans will also allow coordination among
various investments. This kind of integrated planning will equip the municipalities to plan for
various investment in a sustainable manner.
• Inclusiveness, responsiveness and accountability through community engagement:
Municipalities have the advantage of proximity in grasping local needs, but lack avenues,
platforms and processes for effective and inclusive community engagement. By providing ample
opportunities and tools and by institutionalizing processes of community engagements that are
inclusive of everyone: refugees, host communities, women, youth, CBOs and the private sector,
the municipalities will be able to involve various stakeholders in defining the development goals
and priorities. This is an important element in the effort to build long term resilience at the local
level. Communities in northern Jordan have already exhibited notable levels of resilience with
regards to hospitality, tolerance and adaptive coping strategies. The growing pressure on local
resources — which is the principal underlying cause of tensions between the two populations11 —
11 Mercy Corps Analysis of Host Community-Refugee Tensions in Mafraq, Jordan. October 2012.
38
will manifest itself differently from locality to locality, posing diverse challenges and opportunities
for host communities. Broad participation will not only certify the relevance of the implemented
activities, but also over time elevate communities’ sense of agency and ensure that the central and
local authorities are responsive to the stresses being felt at the local level.
• Confidence-building through tangible improvements: Many of the costs of hosting the
refugee population are incurred by the regular users of public services, who have seen quality and
access deteriorate as the supply of these services have not kept pace with the increase in users. The
gap between the rate of arrivals and the reinforcement of service provision is thus a common cause
of frustration in the northern region. Many of the municipal services tend to be visible and can
produce immediate improvements to quality of life for Jordanians and Syrians, be it enhancing
public security through street lights, improving hygiene through garbage collection, or providing
recreational facilities for idle youth.
• Reduction of tensions through investments in individual and communal resilience: Syrian
inflows into local communities are presenting Jordanians with rapidly changing foundations for
individual livelihoods strategies and social interaction, requiring them to adapt to these new
circumstances with similar speed. Lack of communal and recreational space hinders inter-group
interaction and the possibility for people to escape cramped living conditions and alternatives to
suboptimal employment opportunities. Providing the municipalities and the residents with the
institutional space to discuss the most pressing social problems in the community and financing
locally appropriate and creative solutions to these will help link individual and community coping
mechanisms with institutional systems of resilience.
• Social cohesion through participation, voice and engagement: Bringing various
stakeholders together with municipal representatives will provide one among several avenues for
citizens to discuss the challenges facing their communities and how existing public and private
resources can be used to mitigate these. Initial analysis of previous or existing projects using
participatory mechanisms indicate a high satisfaction with this method of decision making and its
ability to increase the sense of agency in locations removed from the center. International
experience in a range of conflict affected countries, from Cambodia to Sri Lanka and Sierra Leone,
is consistent with this approach.
• Employment generation through labor intensive techniques: Unemployment is a major
challenge facing Jordanians. The pressure on host populations’ livelihoods has been consistently
identified as one of the major sources of tension and frustration. In order to respond to the
challenge, the PMs will be encouraged to use labor intensive techniques for implementing
proposed investments. The employment generated through these sub-projects could also help
mitigate risks to social tensions. The ILO has already produced a range of manuals and instructions
tailored to the types of municipal service activities typically implemented in Jordan, and
specifically based on a sampling review of implemented activities under ESSRP. Given ILO’s
unique expertise, it was agreed that the PMU would contract ILO, to develop guidelines and
specifications on labor based methodologies for different categories of works in municipal
services; (b) provide capacity building for MoMA, CVDB, and PMs and technical support on
labor-based technology during implementation of works, and monitor progress in achieving the
objective of the labor-intensive activities.
39
Sub-Projects
3.The project intends to provide funding for small-scale sub-projects for municipal service delivery
in areas of solid waste management, roads improvement, recreational facilities, community
centers, public leisure spaces, etc. Sub-projects may involve small works, procuring equipment
and services. A few indicative examples of such sub-projects are listed below.
▪ Rehabilitation and maintenance of roads and basic infrastructure
▪ Minor rehabilitation of public buildings and town centers
▪ Cleaning, painting, rehabilitation of parks, public libraries, cleaning campaigns in vegetable
markets
▪ Upgrading of water drainage systems, pavements and side walks
▪ Minor improvements to public facilities including school playgrounds and sanitary units,
community centers, covers and shades for public yards and playgrounds
▪ Skills training with NGOs and societies
▪ Partnerships with private sector for productive projects – nurseries, sewing workshops
▪ Youth employment projects
Process
4. The Grants will supplement formula based existing intergovernmental fiscal transfers
channeled to municipalities by the central government. The grants will be provided to 21
municipalities: 14 municipalities that are already participating in ESSRP and 7 new municipalities
(Annex V)
5. The size of the Grant to each PM will be based on the number of refugees hosted by the
municipality. Based on the current resource envelope, the total yearly Municipal Grant allocations
have been estimated at initially US$8.8, US$8.8 and US$ 4.4 million each for year 1, year 2 and
year 3 (with a total amount of US$22 million), respectively, although this may be revised based
on availability of resources and/or change in needs. Yearly allocations to PMs will be paid in two
equal tranches every six months.
6. The municipalities will use the funds to finance works, goods and services to address needs
identified by the communities. The investments will be chosen, based on applicable municipal
mandates, including but not limited to, improvements solid waste management systems, public
lighting, rehabilitation of buildings and basic infrastructure, communal recreational spaces, social
activities, as well as livelihoods and income generation capacity. Potential investments would be
screened against an exclusionary/negative list included in the PoM.
7. The activities to be financed through Municipal Grants will be identified and prioritized
based on a consultative and participatory process involving the municipalities, the communities,
refugees, women, youth, other affected and vulnerable population, CBOs and NGOs, the local
private sector and other relevant stakeholders. Formal one-day community consultation workshops
will be preceded by prior cross-section meetings with various community stakeholders.
Opportunities for community consultations will be advertised widely and the results announced
through various channels, including public media, allowing for filing of grievances through
existing redress mechanisms. Following that, municipal level sub-project selection committees
40
that include community representatives, women, youth and municipal council representatives, will
screen proposals based on appraisal and selection criteria and produce a prioritized short list, which
will then be sent for municipal council endorsement and submission to MoMA and CVDB for
final approval.
8. The appraisal criteria for sub-project selection will have a strong emphasis on processes of
sub-project selection and service delivery (focusing more on ‘how’ than ‘what’), in order to ensure
responsiveness and inclusiveness. These criteria will be detailed out in the PoM. An indicative list
is included below:
• Contributes to the project’s objectives
• Benefits women, youth, children or disadvantaged groups;
• Has been identified through inclusive community consultations to ensure community
needs and priorities are reflected in proposed sub-projects;
• Includes planning and accounting for operating and maintaining services and assets
procured;
• Aligns with municipality’s strategic planning over medium-term;
• Has a schedule of implementation that is realistic and is within the project’s time-frame;
• Employs labor-intensive techniques for public works;
• Generates job opportunities for Jordanians and Syrians (70/30 percent)
• Meets technical and service level standards set forth by the relevant Agencies and
Ministries of the Government of Jordan-- including but not limited to MoMA, Ministry of Public
Works and Housing, MWI, etc;
• Incorporates the least cost option for the location, materials, technologies, designs using
an appropriate cost estimate in its Bill of Quantities and for equivalent levels of service (as
applicable);
• Meets other economic and social safeguards requirements
9. PMs will submit progress reports and FM reports at the end of each semester, which will
be reviewed by MoMA and CVDB to verify the eligibility of expenditures incurred and review
the progress achieved in delivering priority sub-projects and activities.
10. From year two onwards — i.e., tranche 3 and forward —municipalities should spend or
commit at least 75 percent of their preceding tranche of Municipal Grant to receive the next
tranche. This threshold will be reviewed and adjusted as part of annual project reviews.
11. The process of selection, appraisal, approval, implementation and monitoring will be
detailed out in the POM.
41
ANNEX IV: COMPONENT 1: INNOVATION FUND
1. An Innovation Fund (IF) will be introduced under Component 1. This mechanism will
incentivize municipalities to compete through competitive proposals for funding of investments.
The IF will finance demand-driven projects that may be multi-year and may involve inter-
municipality collaboration.
2. The objective of the Innovation Funds is: to promote innovation, cross-municipality
learning and partnerships to ensure the achievement of specific outcomes related to (i) generating
employment opportunities for Jordanians and Syrians; and (ii) providing improved socio-
economic services to communities, with focus on females, youth, and other marginalized groups.
3. Initially, the IF will be launched as a pilot during the first year and, subject to availability
of additional funds, it could be replicated in a second round The total allocation under the IF will
be US$5million, provided through call for proposals, with an average size of the grant amounting
to US$250,000.
4. IF sub-projects shall adhere to the following set of principles:
(i) Municipalities may bundle allocations into larger joint projects to combine the
average project budgets grants of US$250,000. Bundled projects shall adhere to the
same principles as standalone projects as follows;
(ii) Project design includes robust and inclusive participatory consultations and
planning,
(iii) Projects provide innovative solutions to local challenges faced by communities, and
(iv) Projects contribute directly to the project’s outcomes.
(v) Projects that leverage resources and expertise by partnering with CBOs, NGOs, and
private sector are preferred
(vi) Projects promote improved services and/or employment opportunities for Jordanians
and Syrians.
5. Municipalities will furthermore be encouraged to consider and pursue project ideas that
have surfaced through other donor-financed engagements including the USAID-funded CITIES
project and other similar consultative planning initiatives supported by the EU and International
NGOs
Eligibility Criteria:
6. IF grants will be open for submissions from all 21 MSSRP PMs in addition to other
Category A municipalities or Governorate centers (see Annex V).
Processes and procedures.
7. IF call for proposal cycles are foreseen, in year 1 on a pilot basis, and for year 2 pending
availability of funding. Each IF cycle would have a two-step prioritization and selection process.
42
Both steps would involve that projects will be prioritized and selected based on the following
criteria:
(i) higher focus on women, youth, and marginalized populations as direct
beneficiaries;
(ii) higher labor content (labor intensive works);
(iii) employment generation potential for Jordanians and Syrians;
(iv) established partnerships with private sectors, NGOs, etc.;
(v) inter-municipal cooperation: and,
(vi) ensured mechanisms for citizen engagement and grievance redress.
Qualification for proposals:
8. Projects have to meet the objectives and features defined in the above-mentioned
paragraphs. A negative list of activities will be detailed in the PoM. This negative list will include,
but not necessarily be limited to: political activities, investments detrimental to the environment,
works involving relocation of people or impacting livelihoods, large-scale infrastructure activities
such as new landfills or waste water treatment plants, heavy equipment and service vehicles, travel,
salaries or “top up” payments to civil servants and municipal staff, and other ineligible
expenditures.
9. Proposals Screening: Minimum criteria for approving or rejecting the proposals would
include the following:
• The proposed activities must have labor content of not less than 30 percent (proposals with
higher labor content could receive more points as part of a scoring system);
• The proposed activities should not exceed the prescribed funding envelope. Currently, the
funding envelops for a single municipality IF grant is estimated between US$200,000 and
US$500,000;
• Joint projects between collaborating municipalities may bundle single municipality budget
envelops guided for planning purposes by an average amount of US$250,000 per
municipality. Bundled projects and associated budgets will be assessed on merit against
the above outline principles and criteria, as well as against synergies and economies of
scale factors.
• The proposed activity must be implemented within the project timeframe;
• The proposed activity must have a simple operations and maintenance plan;
• The proposal must include a simple cost-benefit analysis (an economic and financial
feasibility study must be developed after the project had been tentatively approved);
• The proposal must ensure that jobs created are local from within the community of the
applying municipality with a minimum of 70 percent for Jordanians. Proposals targeting
employment for women, youth, would get higher ranking scores;
• The proposed activities should not be part of the negative list.
10. In addition to the above minimum criteria, the following selection criteria will be used in
the evaluation of proposals using an agreed scoring system, to be reflected in the updated PoM:
• Preference would be given to proposed activities that would benefit a poverty pocket/poor
neighborhoods within the municipality;
43
• Preference would be given to proposed activities that are evidenced with a participatory
community consultation process;
• Preference would be given to proposed activities in renewable energy/energy conservation
• Preference would be given for proposals that promote a joint activity (benefits more than
one municipality);
• Preference would be given to proposals for activities that generate higher labor content
than the minimum required;
• Preference would be given to proposals that promote economic or social livelihoods,
including collaboration with local NGOs;
• Preference would be given to proposals that include employment opportunities for females
and/or youth.
• Preference would be given to proposals that include providing training and coaching skills
to unskilled or semiskilled laborers, women, and youth.
11. Call for proposals: The project will develop a template for, and will include the
requirements and minimum qualifications in a call for proposals, which would be announced
publicly, including in local newspapers, and on MoMA and CVDB websites. The Call would
specify the names of eligible municipalities (Annex V). A Technical Committee for evaluation of
proposals will be put in place, with membership of ILO, as needed. Municipalities that receive
preliminary approvals on their proposals will be provided with capacity building support and hand
holding to further develop their proposals, mainly using the support from additional expertise in
project planning and formulation.
44
ANNEX V - LIST OF ELIGIBLE MUNICIPALITIES UNDER MSSRP A: Eligible Municipalities for Municipal Grants
# Municipality Governora
te
Population
(2015
Census)
Of which
Syrians % Syrians
From
ESSRP
Type A or
Govt
Center
1 Alza'tary & Almansheah Mafraq 18,389 7,957 43.3% X
2 Mafraq Alkubrah Mafraq 122,028 39,157 32.1% X X
3 Ramtha Jadeda Irbid 166,508 50,875 30.6% X
4 Husha Aljadedah Mafraq 25,107 6,617 26.4% X
5 sahel Horan Irbid 71,994 17,431 24.2% X
6 Serhan Mafraq 26,305 6,299 23.9% X
7 Irbid Alkubrah Irbid 840,512 198,744 23.6% X X
8 Sabha & Defianeh Mafraq 16,976 3,636 21.4% X
9 Sahab Amman 128,936 25,148 19.5% X
10 Dhlail Zarqa 50,931 9,680 19.0% X
11 Ma'an Ma"an 41,632 5,401 13.0% X X
12 Zarqa Zarqa 645,954 71,415 11.1% X X
13 Madaba Alkubrah Madaba 149,648 13,242 8.8% X X
14 Ajlun Alkubrah Ajlun 58,803 3,805 6.5% X X
15 Azraq Zarqa 9,488 4,761 50.2%
16 Um aljmal Aljadedah Mafraq 15,515 5,682 36.6%
17 Tabaqat Fahl Irbid 19,856 6,911 34.8%
18 Janed Ajlun 16,204 5,559 34.3%
19 Gharb Irbid Irbid 41,983 13,981 33.3%
20 Khaldiyah Mafraq 20,386 6,660 32.7%
21 Dair Abi Said Irbid 78,972
53,837 13.02%
45
B: Eligible Municipalities for the Innovation Fund
Number Municipality Governorate From ESSRP
Type A or
Governorate
Center
Eligible for Block
Grants
1 Alza'tary & Almansheah Mafraq X x
2 Mafraq Alkubrah Mafraq X X x
3 Ramtha Jadeda Irbid X x
4 Husha Aljadedah Mafraq X x
5 sahel Horan Irbid X x
6 Serhan Mafraq X x
7 Irbid Alkubrah Irbid X x x
8 Sabha & Defianeh Mafraq X x
9 Sahab Amman X x
10 Dhlail Zarqa X x
11 Ma'an Ma"an X x x
12 Zarqa Zarqa X x x
13 Madaba Alkubrah Madaba X x x
14 Ajlun Alkubrah Ajlun X x x
15 Azraq Zarqa x
16 Um aljmal Aljadedah Mafraq x
17 Tabaqat Fahl Irbid x
18 Janed Ajlun x
19 Garb Irbid Irbid x
20 Khaldiyah Mafraq x
21 Dair Abi Said Irbid x
22 Salt Al-Kubra Balqaa' x
23 Jarash Al-Kubra Jarash x
24 Karak Al-Kubra Karak x
25 Tafeela Al-Kubra Tafeela x
26 Rusaifa Zarqa x
46
ANNEX VI– SUMMARY OF PUBLIC CONSULTATIONS
A consultation meeting was held on March 9, 2017 in Amman, at the Landmark Hotel, to present
the proposed MSSRP and facilitate a discussion about lessons learned during implementation of
ESSRP. The Consultation brought together over one hundred fifty participants including mayors,
municipal council members, municipal LDUs (Local Development Units), women, youth, private
sector and Syrian refugees. Participating old and new municipalities comprised of Irbid, New
Ramtha, Greater Mafraq, Al Sarhan, Sahel Horan, Al Wasateyeh, Greater Ajloun, Ma’an, Za’atari
& Mansheyeh, Zarqa, New Hosha, Sabha & Dafyaneh, Sahab, Adhleil, Greater Madaba, Azraq,
Um Al Jmal, Al Jneid, West Irbid, and Deir Abi Sa’id. Donors and bilateral organizations also
participated including Canada, UK, Denmark, Netherlands, USAID and the International Labor
Organization (ILO).
Issues presented:
The consultation session was divided in two parts: presentations made by donors, the World Bank,
ILO, the ESSRP PMU and Sahab Municipality, and a facilitated discussion with participants.
Presenter(s) Topic
Donors (UK
presented on
their behalf)
Presentation on the proposed project where the importance of the support
extended by the donors’ community to Jordan to help the country face the
impact of the Syrian crisis and the influxes of refugees was emphasized. Donor
commitment to continue assisting Jordanian host communities to enhance their
living conditions during the new MSSRP through supporting job creation and
income generating projects was expressed.
ESSRP PMU Presentation focused on achievements of ESSRP to date, the challenges faced
during implementation, disbursements and types of interventions carried out.
The MSSRP design was presented, its objective, its main features (number of
PMs, project’s Components, eligible list of interventions, etc.), and the main
challenges for the new phase. Focus was given to the importance of compliance
with World Bank social and environmental safeguards requirements.
World Bank MSSRP enhancement of design features were presented. These include
support to gender and women’s empowerment initiatives such as the
introduction of day care centers for children to enable women to work; new
eligible investments to include classroom rehabilitation, parks and gardens, and
other interventions which may be requested by the local communities; more
robust participation and consultation mechanisms, to include Syrian
communities; and labor-intensive work component. MSSRP’s relationship to
the JRP and its support to two pillars of the JRP through supporting service
delivery and local development in host communities was discussed. Lessons
from ESSRP implementation include: flexibility during Project
implementation to maximize the benefits for the concerned host communities;
importance for PMs to comply with the project’s social and environmental
safeguards requirements (incl. specific documentation of on the ground
implementation via tailored safeguards forms).
ILO Presented the concept of labor intensive work methodology and an ongoing project
“Employment through Labor Intensive Infrastructure in Jordan- EIIP” funded by
47
Presenter(s) Topic KFW. The example presented served as a demonstration to MSSRP. Its objective is
to enhance employability of young men and women in their localities and promotes
social cohesion and job creation for Jordanians and Syrians. The project is being
implemented in two Jordanian governorates – Irbid and Mafraq - most affected by the
impact of Syrian refugee influxes.
Mayor Sahab
Municipality
The mayor expressed his gratitude to the CVDB team who was always present and
collaborative and contributed to project’s success in his municipality. He shared that
Sahab is currently hosting around 35,000 Syrian refugees and that several
interventions and services have been supported by ESSRP leading to improved level
of service delivery and satisfaction of the public about the municipality’s performance.
He also stressed that enhanced level of services contributed to improving trust between
the municipality and the community. Challenges included establishment of partnership
with local community-based organizations. The Mayor also talked about the points of
strength of his municipality and its major achievements.
Open Discussion: Many of the issues raised were comments and suggestions, rather than
clarification questions. The attending municipalities were given the opportunity during the second
part of the session to provide their feedback on the project’s design and offer their views on
community level concerns and interests. They also shared lessons learned from experience during
ESSRP implementation and recommendations for the future. The below table summarizes the
issues raised during the consultation:
Questions and/or Comments Answers
New municipalities should benefit from the
experience of old municipalities included under
ESSRP and lessons learned from the
implementation period.
Knowledge transfer sessions were organized during
ESSRP implementation and would also be organized after
the kick-off of MSSRP project to address concerns.
Request that the new project includes more
developmental and income generating projects and
that focus be on developmental and income
generating projects to create jobs and improve
people’s livelihood.
It was confirmed that this is one of the main objectives of
the MSSRP.
Allow new hiring and recruitment to implement
developmental projects
Suggestions were noted.
Some investments and income generating projects
require purchase of land to develop therefore
project should allocate a percentage of funds for
land acquisition and expropriation.
MSSRP confirmed that they could not earmark funding for
such transactions.
Municipalities are not qualified to manage and
operate developmental projects
Technical assistance would be provided through PMU and
partners to support municipalities
Reduce requirements to feasibility studies for
developmental projects
This is not possible.
Projects’ sustainability should be taken into account
into the design
Confirmed
Several municipalities requested the provision of
training programs and the establishment of training
centers to provide training for certain audiences:
municipal staff, women and youth. Training of
Noted.
48
Questions and/or Comments Answers
youth to enhance their employability was raised by
several municipal officials.
Za’atari and other municipalities pointed out the
need to allow the purchase of equipment and
furniture under the new MSSRP
The project could finance equipment and furniture but the
procurement of these items should be well planned (how
they will be managed and operated). It was added that some
municipalities already noted that the Audit Bureau- AB
(the governmental auditing agency) sometimes blocks the
purchase of equipment and furniture but things should be
improved through dialogue between the AB and
municipalities to come up with acceptable solutions for all
parties.
A couple of municipalities stressed the importance
of retaining the selected municipalities for the life of
the project.
The issue has been accounted for in Project’s design and
that all PMs will remain in the project for its entire
implementation duration
One of the old municipalities advised the present
other municipalities that they should implement
energy efficiency projects especially for street
lighting to reduce their energy bill and promote
energy saving schemes.
Noted.
Request by municipalities to enhance internal and
external physical and technical supervision on
projects as the Audit Bureau does not conduct
physical/technical inspection (only at project
commissioning);
Noted.
Certain municipalities also underscored the
importance to expedite and loosen up project’s
approval by the technical committee at MoMA
(reduce bureaucracy);
Noted.
Lesson learned: strengthen coordination and
collaboration between:
• the different public institutions (such as water and
electricity)
• donors themselves
• MoMA and UNHCR (requested by the
municipality of Azraq especially for job
opportunities at the Azraq refugee camp)
• MoMA and MoPIC for projects’ financing
Noted, that has been incorporated in the project design.
Most of Syrian refugees requested creation of job
opportunities for the refugees through the
implementation of developmental projects.
The labor-intensive activities are a special focus of MSSRP
that will address this request.
49
Questions and/or Comments Answers
One of the Syrian refugees (an engineer) made a
recommendation that all municipalities should have
a list of the existing Syrian refugees and their
qualifications to better match existing expertise and
new job opportunities.
Noted.
Syrian refugee women suggested training
certificates for Syrian refugees to enhance their
employability; also requested for micro and small
projects for women and that any new projects should
recruit the needed labor from the local area.
Noted.
Requests for more public spaces such as parks,
playgrounds, etc. Parks and public spaces were
expressed by Syrian participants.
Noted.
Summary of consultation:
The consultation found that overall communities were very satisfied with ESSRP supported
interventions and that they are highly supportive of the new MSSRP. They also appreciated the
opportunity to present their feedback on the project as well as lessons learned from ESSRP
implementation. They expressed the need to continue supporting municipalities to address the
negative impacts of the crisis on public services but that the focus should shift now to improving
living conditions for the people in host communities through job creation and income generating
projects. Syrian refugees invited to the workshop were also given equal opportunity to present
their views on the project and their relationship with the municipalities in their localities. All Syrian
refugees who intervened during the consultations session commended the good and collaborative
relationship with the municipalities in their localities and appreciated the fact that municipalities
also include them in decision- making process for sub-projects’ selection as well as for level of
offered services.