Document o f The World Bank

FOR OFFICIAL USE ONLY

Report No: 53 180-ZR

PROJECT PAPER

O N A

PROPOSED GRANT

IN THE AMOUNT OF SDR 22.6 MILLION (US$35 MILLION EQUIVALENT)

TO THE

DEMOCRATIC REPUBLIC OF CONGO

FOR AN

ADDITIONAL FINANCING

FOR THE

EMERGENCY SOCIAL ACTION PROJECT

March 5,2010

Human Development Social Protection Africa Region

This document has a restricted distribution and may be used by recipients only in the performance o f their official duties. I t s contents may not otherwise be disclosed without World Bank authorization.

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CURRENCY EQUIVALENTS (Exchange Rate Effective February 1,20 10)

Currency Unit = CFA Franc CFA Franc 1 = US$0.0021853

US$ 1 = CFA Franc 457.61

ALE CAS CFAA CPS DISPE DIVAS DRC ESFM FSRDC

HIPC IBRD IDA IPDP M&E LIPW MDG MDRI MINAS

MIS NCB NGO ovc PAD PASU PDO

PIU POM PRSP PRGF RAAP RPF SPF TFESSD UNICEF WB WHO

FISCAL YEAR January 1 - December31

ABBREVIATIONS AND ACRONYMS Local executing agency (Agence locale d 'exe'cution) Country Assistance Strategy Country Financial Accountability Assessment Social Promotion Center (Centre de Promotion Sociale) Department of Child Protection (Direction des Interventions Sociales pour la Protection de I 'Enfant) Division of Social Affairs (Division Provinciale des Affaires Sociales) Democratic Republic of Congo Environmental and Social Management Framework The Social Fund of the Democratic Republic of Congo (Fonds Social de la Re'publique Ddmocratique du Congo) Highly Indebted Poor Country International Bank for Reconstruction and Development International Development Association Indigenous People Development Plan Monitoring and Evaluation Labor Intensive Public Works Millennium Development Goal Multilateral Debt Relief Initiative Ministry o f Social Affairs, Humanitarian Action and National Solidarity (Minist2re des Affaires, Sociales, Action Humanitaire et Solidarite' Nationale) Management Information System National Competitive Bidding Non Governmental Organization Orphans and other Vulnerable Children Project Appraisal Document Emergency Social Action Project (Projet d'Action Sociale d'urgence) Project Development Objective

Project Implementation Unit Project Operational Manual Poverty Reduction Strategy Paper Poverty Reduction Grant Facility Rapid Assessment, Analysis and Action Planning and Resettlement Policy Framework State and Peace Building Fund Trust Fund for Environmentally and Socially Sustainable Development United Nations Children's Fund World Bank World Health Organization

Vice President : Obiageli K. Ezekwesili Country Director : Marie-FranGoise Marie-Nelly

Sector DirectorManager: Yaw AnsdLynne Sherbume-Benz Task Leader: Anne Mossige

I I

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FOR OFFICIAL USE ONLY

CONGO, DEMOCRATIC REPUBLIC OF EMERGENCY SOCIAL ACTION PROJECT - ADDITIONAL FINANCING

TABLE OF CONTENTS

I. Data Sheet

11. Introduction

111. Background and Rationale for Additional Financing in the amount o f US$ 35 Million

IV. Proposed Changes

V. Appraisal o f Restructured or Scaled-up Project Activities

Annex I : Results Framework and Monitoring

Annex 11: Risk Identification Worksheet

Annex 111: Revised Implementation Arrangements and Support

Annex IV: Revised Estimates o f Project Costs

Annex V: Financial Management, Audit, Disbursement and Procurement Arrangements

Annex VI: Update on Key Results PASU

Map: IBRD No. 33391

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6

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7

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34

This document has a restricted distribution and may be used by recipients only in the performance o f their off icial duties. I t s contents may not be otherwise disclosed without Wor ld Bank authorization.

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CONGO, DEMOCRATIC REPUBLIC OF EMERGENCY SOCIAL ACTION PROJECT - ADDITIONAL FINANCING

PROJECT PAPER DATA SHEET

Basic Information (Original Project) Project ID: PO86874

Team Leader: Anne Mossige Environmental category: Partial Assessment

Project Name: Democratic Republic o f Congo Emergency Social Action Project Expected Closing Date: September 30,2010 Lending Instrument: Emergency Recovery Loan Joint IFC: Joint Level: . - __. . - - - .

Basic Information (Additional Financing) Date: March 4,201 0 Country Director: Marie Frangoise Marie-Nelly Sector Managerhlirector: (50%) Lynne D. Sherburne-BedYaw Ansu

Team Leader: Anne Mossige Sectors: Other social services (50%); General water, sanitation and flood protection sector

Themes: Social safety nets (60%); Conflict prevention and post-conflict reconstruction (30%); Access to urban services and housing (1 0%)

Project ID: P118658 Environmental category: Partial Assessment Lending Instrument: Specific Investment Loan Additional Financing Type: Restructuring

Joint IFC: Joint Level:

Project Financing Data [ ]Loan [ ]Credit [XI Grant [ ]Guarantee [ 3 Other:

For Loans/Credits/Others: Total Bank financing (US$m.): 35.00 Proposed terms: IDA Grant

4

Borrower: Ministry of Finance - Boulevard du 30 juin - BP 12997 - Kinshasa Congo, Democratic Republic o f Fax: 243 880 23 81 Responsible Agency: Fonds Social de la RDC - 1 1 , Avenue Lukusa (Immeuble ex CEI) - Kinshasa 1 - Gombe Congo, Democratic Republic o f Tel: (243) 99 819 3585 fondsocialdrc@,fondsocial .cd

Project implementation period: Start May 27,20 10 End: March 3 1 , 201 3 Expected effectiveness date: June 30,2010 Expected closing date: March 3 1,20 13 Does the project require any exceptions from Bank policies? Ref: Section Appraisal of Project Activities Have these been approved by Bank management? Does the project include any critical risks rated “substantial” or “high”? Ref: Section Project Risks and Mitigating Measures Project development objective Ref: Section Bank Response The development objective o f the project would be unchanged: to improve access to social services by the poor and enhance management o f development resources at the community level. Performance indicators have been updated to reflect the additional funds being made available. Project description Ref: Section Bank Response The project will finance the following components: A. Infrastructures: (1) community-based infrastructure with a focus on economic activities and (2) income generation through labor- intensive public works; B. Capacity building primarily for communities and civil society organizations; and C. Project coordination and management. The scope o f the project will continue to be national, with a special focus on the Katanga province for employment generation. Which safeguard policies are triggered, if any? Ref: Section Appraisal of Project Activities The environmental classification o f the original project i s Category B and this wi l l not change with the additional financing. Approved safeguard review procedures are in place for the community-based activities and are being developed for the labor intensive public works component. The Environmental and Social Management Framework (ESMF) (dated September 2007 and disclosed for the original Project) i s s t i l l valid, but has been modified slightly to be more efficient and effective for the Additional Financing. There i s no need to re-disclose the slightly revised ESMF. The Resettlement Policy Framework (RPF), and the Indigenous People Development Plan (IPDP) are s t i l l valid and will continue to be used as appropriate. Conditions o f effectiveness: There are two conditions: (i) the Subsidiary Agreement between the Government and the FSRDC has been updated under terms satisfactory to the Bank/IDA; and (ii) the Project Operational Manual has been updated under terms satisfactory to the Bank/IDA.

[ ]Yes [XINO [ ]Yes [ ] N o [XIYes [ ] N o

5

I. Introduction

1. This Project provides an additional grant in the amount o f US$35 mill ion to the Emergency Social Action Project Grant (H120-DRC), P086874, to finance the costs associated with: (i) scaling up activities to enhance the impact o f a well performing project; and (ii) responding to a change in circumstances that occurred during project implementation. The Project i s one o f the portfolio instruments for the Bank to help mitigate the impact o f the financial crisis.

2. The development objective o f the original PASU project was: to improve access to social services by the poor and enhance management o f development resources at the community level.

3. The Additional Financing will have the same development objective as the original PASU. However, it will not finance a component on education grants and community libraries (Component 3 o f the original project) and activities related to medium and large-scale infrastructure (within Component 1) because planned activities wi l l be successfully completed under the original financing o f the PASU Project. In addition, a sub-component on income generation wi l l be modified to provide a more appropriate response to the high unemployment in the Katanga province, which has the country’s most important mineral resources, resulting from the collapse o f the mining sector. The US$5 million allocated to labor intensive public works in the Katanga province under the Additional Financing will leverage an additional q S $ 5 million from the State and Peace Building Fund (SPF) to support the same set o f activities. This will provide employment and income opportunities, in particular to artisanal miners, and pilot a potentially important safety net system.

11. Background and Rationale for Additional Financing in the amount of US$ 35 million

4. Original Proiect: The original grant was approved on October 26, 2004 (Grant Number H120 DRC) during the transition to peace that followed the signature o f the final act o f the Inter-Congolese dialogue. The Emergency Social Action Project (PASU) aimed to provide critical and timely support to help mitigate the social and humanitarian impact o f 30 years o f civil war and mismanagement. This assistance was expected to facilitate the continued implementation o f economic reform, political reunification, and durable peace. The grant was approved in the amount o f US$ 60 million on IDA grant terms, for an expected completion date o f September 30, 2008. The project was subsequently extended twice on government request. Current closing date i s September 30, 2010. Specifically, the project was designed to support a social fund mechanism that would implement activities in the following four components: (i) Sub-projects targeting the construction and rehabilitation o f community-based and medium-scale social and economic infrastructure nationwide as well as piloting o f income generating activities; (ii) capacity building for government agencies and NGOs involved in the implementation; (iii) provision o f scholarships to increase enrollment in universities and a literacy program, including the provision o f community libraries and training in library management; and (iv) project coordination.

6

5. Pro-iect execution: The project i s executed by the Social Fund o f DRC (FSRDC), a public organization created in 2002 to improve the living conditions o f the poor by making available to communities the resources - financial and human - necessary for implementing self-selected sub-projects. The project started with very slow disbursement rates. However in 2005 a new coordination team established strong fiduciary functions, procedures, and program management processes. To date, the project has disbursed US$ 53 million, representing 88 percent o f the grant amount. Two hundred and three sub- projects have been completed, 417 are under implementation and 27 have recently been approved, but have not yet started, exceeding project targets (Annex V I provides the project’s key results). It i s expected that the remaining funds will be disbursed by the current closing date.

6. Rationale for request: The rationale for the Additional Financing i s to implement additional or expanded activities that are consistent with the objective o f the existing project. The Additional Financing would in particular:

i. Expand the impact o f the current project to 300 additional communities and allow the Social Fund to respond to some o f the 5,000 sub-project proposals it has received, but for which it has no funding. Sub-projects that focus on small-scale economic infrastructure wi l l be given priority as other Bank-financed health and education projects will be financing schools and clinics. There will be a uniform ceiling for the community-based sub-projects o f US$lOO,OOO.

ii. Expand the labor intensive public works program financed by a State and Peace Building Fund (SPF) grant in the Katanga province, providing employment and income opportunities, in particular to artisanal miners, and piloting a potentially important type o f safety net system. This would help mitigate the negative impact o f the financial crisis and contribute to the rehabilitation o f key infrastructure. I t i s estimated that around 290,000 persoddays o f salaried employment will be created in Katanga through US$5 mill ion targeted for labor-intensive public works under the Additional Financing. The SPF grant will start execution soon and implementation modalities under the Additional Financing will be aligned to those for the SPF grant. The ceiling for the labor-intensive public works sub- projects will be US$200,000.

7. The choice to proceed with Additional Financing rather than a new project i s due to the advantages in terms o f continuity in implementation, as well as reduced processing time, lower costs, and greater efficiencies o f the Additional Financing mechanism versus a new stand-alone project. In addition, three Bank missions conducted in July 09, September 09, and December 09 have positively assessed the capacity o f the Social Fund to implement the activity focusing on labor intensive works in Katanga. The missions also appraised project modalities including targeting and training o f beneficiaries as well as the need for strengthening the capacity o f different partners in labor intensive techniques.

7

8. Consistencv with CAS or CPS: The proposed activity i s closely aligned with strategic elements 2 and 3 o f the DRC Country Assistance Strategy (CAS) o f December 18, 2007, which are to help consolidate macroeconomic stability and economic growth, and help improve the provision o f social services and reduce vulnerability, respectively.

111. Proposed Changes

9. Proiect scope and components: The scope o f the project will continue to be national, with a special focus o n the Katanga province for employment generation.

i. The component on education grants and community libraries has been successfully implemented and will be closed.

ii. The subcomponent on community-based infrastructure in Component 1 will be revised as follows: (a) community-initiated sub-projects focusing on economic activities will be given priority as schools and clinics are being supported by other Bank-financed projects, therefore interventions in the education and health sectors will be considered on a selective basis, taking into consideration other actors and interventions and paying particular attention to equity, complementarity and effectiveness (availability o f staff, linking with the school and health facilities’ mapping process); (b) greater emphasis will be put o n social capital development by strengthening activities designed to enhance social cohesion, promoting community participation in governance processes and ensuring competent project implementation; (c) a uniform ceiling o f US$ 100,000 will be applied to al l community sub-projects to ensure enough flexibility in a context o f highly variable and fluctuating commodity prices, (d) the community contribution o f 10 percent o f the cost o f sub-projects will be maintained, but exceptions would be allowed (e.g., for communities that have demonstrated their inability to secure cash contributions when the nature o f the project does not lend itself to in-kind contributions); (e) particular emphasis will be put on sustainability, for instance by introducing sub-project maintenance plans as a selection criteria, and by promoting increased involvement and the quality o f the contribution o f the provincial governments. Moreover, to increase the possibility for the FSRDC to continue to operate beyond the IDA-funded program, the Bank and the FSRDC will explore possibilities for a government contribution to FSRDC operations during the period o f the Additional Financing.

iii. The subcomponent o n income generating activities in Component 1 will be redesigned to provide revenue-earning opportunities in the Katanga province through a labor intensive public works approach. The sub-component will also help address some o f the infrastructure rehabilitation challenges in the province. Funding for public works will complement a US$ 5 mil l ion grant from the State and Peace Building Fund for the same activity. Feasibility and the capacity o f the FSRDC to support this project were appraised during f ield missions in June 09, September 09, and December 09. It i s expected that the portion o f public works supported by the Additional Financing will generate 290,000 persoddays o f

- 8

salaried employment targeting unskilled or semi-skilled labor force, mostly coming from the ailing mining sector.

Activity

iv. The Bank and the FSRDC will also look into possibilities for how to involve civil society in project monitoring.

Original YO of total Additional YO of Budget' original budget Financing total AF Total

10. Proiect costs: The total project cost will be brought to U S $ 101 million (including the additional grant o f U S $ 35 million) o f which IDA would finance U S $ 9 5 million. The remainder will be represented by community contributions (US$ 4.0 million equivalent for the original project and U S $ 2 million equivalent for the Additional Financing), largely in the form o f in-kind contributions to sub-projects (see Annex IV for a revised estimate o f project costs).

Infrastructures

Revised Estimates o f Project Costs (amounts in '000 $ US)

budget 35.04 59 27.00 77.14 62.04

Component r Community sub- projects2

Income generating activities sub-projects3

Capacity building

34.04 57 22.50 56.54

1 .oo 2 4.50 5.50

1.97 3 1.00 2.86 2.97

Education

Coordination and management

Total

3.14 5 0.00 0.00 3.14

19.85 33 7.00 20.00 26.85

60.00 100 35.00 100.00 95.00

As o f July 30,2009. Including medium scale sub-projects for bigger communities. In the context o f the additional fmancing project, this refers to the Labor Intensive Public Works

Component in Katanga.

9

1 1. Fiduciarv aspects: All disbursements will be issued through a separate designated account in US dollars to be opened in a commercial bank acceptable to IDA. There wi l l be no major changes on procurement procedures. However, procurement activities under the Additional Financing will be carried out in accordance with the new Bank’s guidelines -- Guidelines: Procurement under IBRD Loans, and IDA Credits dated May 2004, revised October 2006; and Guidelines: Selection and Employment of Consultants by the World Bank Borrowers dated May 2004, revised October 2006- as well as the provisions stipulated in the Financing Agreement. Additional details are available in Annex 111.

12. Financial management o f the Additional Financing wi l l follow the same approach as the implementation arrangements in place for the ongoing Project. However, in order to build the capacity o f the FSRDC to effectively manage an expanding portfolio, the following arrangements will be enforced: (i) at least two additional accountants will be recruited, one o f whom will be based in Lubumbashi office; (ii) a multi projects and multi sites accounting software will be purchased and installed to allow the FSRDC to manage several projects at the same time; (iii) the internal audit team wi l l be strengthened by the selection o f an additional qualified auditor with engineering ski l ls and qualifications: and (iv) the project accounts will be audited on an annual basis (rather than once every six months) and the external audit reports will be submitted to IDA within six months after the end o f each year. The Additional Financing will be subject to technical auditing, and the FM procedures manual will be updated to reflect these changes.

13. Closin? date: The Additional Financing would extend the project for an additional 30 months beyond the current closing date o f September 30,2010, bringing the new closing date to March 3 1,2013 in compliance with OP 13.20.

14. PASU. The following outcome indicators will be monitored:

Expected outcomes: The Additional Financing will build on the results achieved through the

Increased number o f people having access to clean water Increased number o f Beople with access to market stalls and/or storage facilities rehabilitated by the project Reduction in the travel time o f motorized vehicles on rehabilitated roads (this indicator has been rephrased to make it more easily measurable) Percentage o f sub-projects that are operational and well maintained within a year o f completion 300 communities with improved capacity to plan, implement, and manage their economic and social infrastructure (this will bring the total outcome for the project to 850 communities) 290,000 persoddays o f salaried employment created in the Katanga province through labor intensive public works.

0

0

0

IV. Appraisal of Restructured o r Scaled-up Project Activities

15. Environmental and Social Aspects: Similarly to the original project, the Additional Financing i s classified as environmental category B. Both community sub-projects and labor intensive public works may have the potential o f some localized environmental and social impacts. However, as confirmed during the original project as well as during the appraisal exercise for labor intensive public works in Katanga, no activity funded under the Additional Financing i s expected to have a significant negative environmental or social impact. Investments will be small (none o f them wi l l be above US$ 200,000)

10

and many will primarily involve the reconstruction, rehabilitation or re-equipment o f existing infrastructure . 16. Under the Additional Financing, the Environmental and Social Management Framework (ESFM) developed under the original project i s s t i l l valid but, based on a review o f experience, it has been modified slightly to be more efficient and effective and will be implemented as follows:

e

e

e

e

17.

Use o f the screening matrix and preparation o f an Environmental Impact Evaluation will be replaced with (i) a negative l i s t and (ii) mitigation guidelines for the most common type o f sub- projects. The negative l i s t will include sub-project characteristics such as involuntary resettlement, activities in protected areas, use o f WHO category I or I1 pesticides that would make the project ineligible for financing. Environmental guidelines prepared during the original project for the most common type o f sub- projects will be updated or added as appropriate. The screening matrix and Environmental Impact Evaluation would only be necessary for sub projects for which environmental guidelines do not exist, and sub-projects costing more than US$ 100,000. Rather than monitoring environmental conditions, the FSRDC will only verify the implementation o f mitigation measures.

Other safeguards documents developed during the original projects - a Resettlement Policy Framework (RPF), and an Indigenous People Development Plan (IPDP) are s t i l l valid and will continue to be used as appropriate.

11

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Annex I1 Risk Identification Worksheet

Risk factors Rating' of residual risk Mitigation measures

Macroeconomic framework

Political instability I The Bank will continue to work closely with the UN and other bilateral and conflict resurgence accordingly.

partners to monitor the political situation and adjust i t s program

The authorities have negotiated a new IMF PRGF program that was approved by the I M F ' s Board in December 2009. The program aims to enhance macroeconomic stability, fiscal space for priority spending. In close coordination with the IMF, the program will pursue its monitoring o f the country's adherence to the PRGF, including the macroeconomic stability and the fulfillment o f other HIPC Completion triggers. Adherence to this program i s a key trigger to release o f about US$ 10 bil l ion HIPC debt relief and possible additional MDRI.

11. Operation-spec

H

S

Implementation capacity

The FSRDC has a good knowledge o f the Bank FM and procurement procedures Broad-based participation i s required for sub-project preparation and

NGOs and provincial offices will mitigate this risk The Social Fund will rely on well established networks o f banks to

implementation. Rigorous monitoring, evaluation, and oversight by

Insufficient institutional capacity

Limited capacity o f selected NGOs/ subcontractors

L

L

Governance issues

lV.Overal1 Risk (including Reputational Risks)

Limited community participation

M

Conflict

Safeguards

tic R isks Capacity to facilitate implementation o f the sub-projects has been demonstrated. The SPF will develop specific implementation guidelines for the Labor Intensive Public Works component (LIPWs) to be used by the Additional financing. The institutional capacity of FSRDC will be strengthened through

upgrade to a multi sites multi project accounting software; strengthening the internal audit team; and recruiting additional staff including an accountant based in the Katanga.

All NGOs selected to facilitate the L IPW will undergo specific training on LIPWs

L

L

M

M

L

Even though this i s a high risk country, the project i tsel f only has a moderate risk because it has established a good track record on implementation.

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Annex I11 Revised Implementation Arrangements and Support

Proi ect Implementation Arranvements

The Additional Financing will retain the institutional arrangements put in place for the implementation o f the original project. The Social Fund will continue to house the Project Implementation Unit responsible for project implementation, including selecting and funding community proposals as well as selecting and sub-contracting local executing agencies to work directly with communities. The remuneration o f these agencies wi l l be increased from 8% to 12% based on lessons learned, and to attract a larger number of organizations with strong accountability systems. In addition, the FSRDC will supervise activities from i t s offices in the eleven provinces.

The FSRDC has established a reputation for quality implementation and satisfactory financial management and procurement capacity. However, as suggested by World Bank fiduciary specialists, the financial management and procurement un i t s o f FSRDC national coordination office will be strengthened with one to two professional staff each. Concerning the labor intensive public works program, the Additional Financing wi l l support an additional accountant in FSRDC’s Katanga office while the SPF grant wi l l finance an expert in labor intensive techniques, also based in Katanga. A project implementation manual for labor intensive public works has been approved.

Financial management arrangements

Financial management o f the Additional Financing wi l l follow the same approach as the implementation arrangements in place for the ongoing Project. However, in order to build the capacity o f the FSRDC to effectively manage an expanding portfolio, the following arrangements will be enforced:

(i) At least two additional accountants will be recruited, one o f whom will be based in Lubumbashi office;

(ii) A multi projects and multi sites accounting software will be purchased and installed to allow the FSRDC to manage several projects at the same time;

(iii)The internal audit team will be strengthened by the selection o f an additional qualified auditor with engineering skilled and qualifications.

@)The project accounts wi l l be audited on an annual basis (rather than once every six months) and the external audit reports are submitted to IDA within six months after the end o f each year.

The additional financing wi l l be subject to technical auditing, and the FM procedures manual w i l l be updated to reflect these changes.

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Disbursements arrangements

Amount of the Grant Allocated

(expressed in SDR)

All disbursements will be issued through a separate designated account in US dollars to be opened in a commercial bank acceptable to IDA. Upon Grant effectiveness, a transaction-based disbursement method (replenishment and reimbursement) will be used during the first 6 months o f project implementation. Thereafter, the option to disburse against submission o f Interim Financial Reports (also known as the Report-based disbursement method) could be considered subject to the quality and timeliness o f IF& submitted to the Bank and the overall financial management arrangement as assessed in due course. Detailed disbursement arrangements are discussed in Annex V.

Percentage of Expenditures to be

Financed [(inclusive of

The project will adopt the following disbursement categories:

5,200,000

22,600,000

Category

100%

(1) Micro-grants under Part A 1 and Part A.3 o f the Project

(2) Goods, Consultant Services and Operating Costs for the Project (other than for Parts A.2 and C o f the Project and other than as covered by Micro-grants)

TOTAL AMOUNT

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Annex I V Revised Estimates of Project Costs

(amounts in '000 $ us)

C

D

Education 3.14 5 0.00 0.00 3.14

Coordination and 19.85 33 7.00 20.00 26.85 management

Total 60.00 100 35.00 100.00 95.00

As o f July 30,2009. Including medium scale sub-projects for bigger communities. ' In the context o f the additional financing project, this refers to the Labor Intensive Public Works

Component in Katanga.

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ANNEX V

Financial Management, Audit, Disbursement and Procurement Arrangements

Executive summary

The “Fond Social de la Rdpublique Democratique du Congo” (FSRDC) will be the Bank and other donors’ main counterpart and focal point. The FSRDC i s very familiar with the Bank FM requirements. Financial management o f the Additional Financing will follow the same approach as the implementation arrangements in place for the ongoing Project. These are considered acceptable to IDA, having been improved through the implementation o f the action plans prepared by the government following the midterm review and various FM implementation support missions. The residual FM risk has been rated Moderate. The Interim Un-audited Financial Reports (IFR) are prepared every quarter and submitted to the Bank regularly in a form and substance that complies with IDA Financial Management requirements, and are current. The Aide Memoire o f the last implementation support mission carried out in July 2009 revealed some improvements in the FSRDC FM performance leading to an overall Satisfactory FM rating.

Implementation o f the Additional Financing and the SPF grant for Labor Intensive Public Works in Katanga and the plan to also implement the Support to Street Children in Kinshasa Project will translate into an increase o f activity for FSRDC - which in turn will require more sophisticated control systems and adequate staff, an effective internal audit function, upgrading the manual o f procedures, an integrated information system (network system) and multi-projects software. Accordingly, appropriate additional FM arrangements have been discussed and agreed with the government to mitigate these risks. Due to the satisfactory FM performance o f the FSRDC, the project accounts wi l l be audited on an annual basis and the external audit reports will be submitted to IDA within six months after the end o f each year. The last audit report o f project financial statements for the period ended December 3 1 , 2008 was unqualified (clean). There i s no overdue audit report at the time o f preparation o f this additional financing. Finally, the resources o f the additional financing will be subject to technical auditing.

Upon Grant effectiveness, transaction-based disbursement method (replenishment and reimbursement) wi l l be used during the first 6 months o f project implementation. Thereafter, the option to disburse against submission o f Interim Financial Report (also known as the Report- based disbursement method) could be considered subject to the quality and timeliness o f IFR submitted to the Bank and the overall financial management arrangement as assessed in due course. The other options o f disbursing the funds will be available. A Designated Account denominated in U S Dollars will be opened in a commercial bank on terms and conditions acceptable to IDA. An initial deposit equivalent to six (6) months expenditures forecast will be released by IDA at the request o f the project upon effectiveness. Funds will be disbursed to decentralized entities on the basis o f three months budget depicted under a Work Plan. The submission o f accountability (supporting documents o f expenditures) for previous advances will not be a condition for paying subsequent request for replenishment o f the Provincial antennas. However, replenishment o f each provincial bank account will be made on the basis o f two documents: (i) a statement o f expenditures; and (ii) a summary showing the total amount received, the expenditures made.

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A. Risk assessment and mitigation

The Bank’s principal concern i s to ensure that project funds are used economically and efficiently for the intended purpose. Assessment o f the risks that the project funds will not be so used i s an important part o f the financial management assessment work. The risk features are determined over two elements: (i) the risk associated to the project as a whole (inherent risk), and (ii) the risk linked to a weak control environment o f the project implementation (control risk). The content o f these risks i s described below.

The CFAA, PER and the PEFA reports outlined PFM weaknesses at central and decentralized government levels as well as sector ministries level in term o f governance and public funds management;

Entity level Implementation of the additional financing ; the SPF Grant for Katanga and the Street Children in Kinshasa Project will translate into an increase of activity for the FSRDC -which in turn will require more sophisticated control systems and adequate staff, an effective internal audit function, upgrading the manual of procedures, an integrated information system (network system) and multi-projects software

The resources of the project may not reach all decentralized entities (province) and used for the intended purposes. Delays in the reporting system and auditing due to the weak capacity of the fiduciary team and geographically location of some entities are expected.

Project level

S

S

The government i s committed to a reform program that includes the strengthening o f the budget classification and implementation of an interim IFMIS. A new legal framework i s being prepared. However there are s t i l l weaknesses in capacity and in audits of a first set of accounts. Efforts are being continuing to strengthen the accounting and audit capacity. Use of IDA FM procedures i s required for this project. The FSRDC i s very familiar with IDA FM procedures. The FM procedures manual will be updated; additional staff will be recruited; the internal audit team will be strengthened; a multi project and multi sites accounting software will be installed.

The FSRDC will strengthen ex-ante and ex-post control of funds allocated to implementing entities at decentralized offices. The scope o f audit will include review of expenditures incurred at decentralized level. Additional FM staff will be recruited on TORS acceptable to IDA and training and hands on advice to new staff

N S H

M

M

Control Risk

Budgeting: (i) weak capacity at central and decentralized entities to prepare and submit accurate work program and budget; (ii) weak consolidation of decentralized budgets; and (iii) weak budgetary execution and control

procedures, lack of qualified additional accountant staff at decentralized level.

Internal Control: internal control system at decentralized level may be weak due to weak FM capacity of IA;

Funds Flow: (i)Risk of misused of funds and delays in disbursements of funds to IA; (ii) and beneficiaries at provincial level; and (iii) unsecured safekeeping and transportation o f finds

Risk Mitigating Measures Incorporated into Project Design

Annual work plan and budget required each year and proclaimed. The project Financial Procedures Manual will define the arrangements for budgeting, budgetary control and the requirements for budgeting revisions. Annual work plan and budget required. IFR will provide information on budgetary control and analysis o f variances between actual and budget. (i) The project will adopt the Congolese accounting system. Accounting procedures will be documented in the procedures manual (ii) The FM team headed by a qualified and experienced Finance Director will be strengthened by a qualified individual consultant recruited on competitive basis; (iii) training on IDA FM procedures will be provided to the new staff as needed. (i) Adoption of a FM Procedures Manuai and training on the use of the manual by the consultant recruited for t h i s purpose (ii) Recruitment of an additional internal auditor who will scrutinize the proclaimed accounting, financial and operational procedures. The internal auditor will report to FSRDC’s Coordinator, who wil l in turn report to the Board of Directors (i) Payment requests will be approved by the Finance Director and the Management Accountant prior to disbursement of funds to contractors or consultants and decentralized entities. (ii) The TORS of the Internal Auditor as well as the External Auditors include regular field visits (physical inspection of goods, services acquired). (iii) A ceiling for expenditures that

can be handled at decentralized level will be set up in the FM procedures manual; (iv) Replenishment o f bank accounts

N

N

Y

N

N

M M

L

S

S

24

Financial Reporting Inaccurate and delay in submission o f IFR at central level due to delays from provincial offices and the increase in the FSRDC activities

Auditing: Delays in submission o f audit report and the scope o f the mission may not cover expenditures incurred at decentralized level;

I

Fraud and Corruption Possibility o f circumventing the internal control system with colluding practices such as bribes, abuse o f administrative positions or misprocurement i s a critical issue.

Risk Mitigating Measures Incorporated into Project Design

at decentralized level w i l l be made via a simplified IFR (summary report) and supporting documents w i l l be kept in provinces; (v) Bank accounts w i l l be opened at decentralized level (vi) New FM staf f capacity w i l l be strengthened prior and during project implementation period. (i) A computerized accounting system w i l l be used.; (e.g. multi projects and multi sites) (ii) IFR and financial statements formats w i l l be agreed at project negotiations. (iii) A Finance Director w i l l support the FM team o f the FSRDC to centralize data from the provinces and additional FM staff w i l l be recruited (i) The project’s institutional arrangements allow for the appointment o f adequate external auditors and the TORS w i l l include field visits and specific report on finding o f physical inspections o f goods, services and works acquired at central and decentralized levels (ii) Annual auditing arrangements w i l l be carried out during the project implementation period; (iii) Close monitoring o f audits due dates by the Bank FM team.

(i) The TOR o f the internal and external auditor s wi l l comprise a specific chapter on corruption auditing (ii) The internal auditor w i l l report to the General Auditor, who in turn w i l l report directly to the Board o f Directors and not to the Coordinator (iii) One sample o f his reports w i l l be submitted to the Bank on a quarterly basis; (iv) revised FM procedures manual approved 3 months after project effectiveness ; (v) robust FM arrangements (qualified FM s t a f f recruited under TORS acceptable to IDA, quarterly IFR including budget execution and monitoring; (vi) technical auditing;

N

N

N

M

M

M

25

Risk

(vii) measures to improve transparency such as providing information on the project status to the public, and to encourage participation o f civi l society and other stakeholder are built into the

R isk Risk Mit iga t ing Measures Conditions Residual R a t i Incorporated in to Project Design fo r R isk ng Effectiveness

(YN

The overall FM risk i s Moderate.

Issue

Staffing at

Financial Management Action Plan

Remedial action recommended Responsible bodylperson

Appointment o f an additional accountant FSRDC

5. the overall financial management risks.

The Financial Management Action Plan described below has been developed to mitigate

Central level:

Staffing at decentralized level: Lubumbashi

Information system accounting software

I tostrengthen the FM function I Appointment o f an additional accountant to strengthen FM in the Katanga office in view o f the additional funds made available with the SPF grant and the Additional Financing (i) Acquisition and installation o f a multi projects and multi sites accounting software for the project

FSRDC

FSRDC and the software providers.

Administrative Accounting, and Financial Manual

Internal auditing

Finalizing the updating o f the FM manual mainly the section on community contribution; audit frequency, internal auditing arrangements, funds flows arrangements Appointment o f one additional internal

FSRDC

FSRDC I auditor (with engineering skills). I Revision o f the TOR o f the current External I FSRDC

auditing I external auditors to reflect the AF

Completion date

3 months after effectiveness

3 months after effectiveness

3 months after effectiveness

condition o f effectiveness

3 months after effectiveness 3 months after effectiveness

FM Effectiveness Conditions No

No

No

Yes

No

The actions required three months after Grant effectiveness are part o f the Recipient’s responsibility to maintain financial management arrangements that are acceptable to the Bank and this responsibility has been specified in the Financing Agreement (Ref. Schedule 2, Section

26

B-1). The timeline for these actions has been discussed with Recipient and reflected in the Minutes o f the Negotiations.

B. Description of the Implementing Entity

The “FSRDC will be the Bank and other donors’ main counterpart and focal point. I t will oversee the entire project management including management o f the funds and will primarily be responsible for: (i) overseeing implementation; (ii) handling financial and administrative management; (iii) collaborating and coordinating with decentralized coordination units (“Antennes”) involved in the project for the successful implementation o f the program; and (iv) liaison with the Bank and other donors. The F M team o f the FSRDC i s composed o f (i) one Finance Director; (ii) two Accountants and one Treasurer at central level; and (iii) one Accountant in each o f the 11 provinces. The FM staff o f the FSRDC, composed o f individual consultants, has been selected on a competitive basis under TORS acceptable to the Bank. The Finance Director has the overall oversight o f the project financial management system.

C. Financial management arrangements

Financial management o f the Additional Financing wi l l follow the same approach as the implementation arrangements in place for the ongoing Project. These are considered appropriate by IDA, having been improved through the implementation o f the action plans prepared by the government following the midterm review and various FM implementation support missions. The Interim Un-audited Financial Reports (IFR) are prepared every quarter and submitted to the Bank regularly in a form and substance that complies with IDA Financial Management requirements, and are current. The Aide Memoire o f the last implementation support mission carried out in July 2009 revealed some improvements in the FSRDC FM performance leading to an overall Satisfactory FM rating. The action plan put in place to address some FM weaknesses i s well implemented by the FSRDC. Most o f the issues identified during the mission have been addressed or are currently being addressed.

Implementation o f this additional financing, the SPF grant for Katanga and the street children project (under preparation) will translate into an increase o f activity for FSRDC - which in turn wi l l require more sophisticated control systems and adequate staff, an effective internal audit function, upgrading the manual o f procedures, an integrated information system (network system) and multi-projects software. Accordingly, the following arrangements have been agreed for efficiency purposes: (i) a draft revisedhpdated FM procedures manual i s being prepared and will be used for this Additional Financing; (ii) at least two additional accountants wi l l be recruited o f which one accountant will be located to Lubumbashi office to manage the FM aspects o f the SPF grant; (iii) a multi projects and multi sites accounting software will be acquired and installed to allow the FSRDC to manage several financings at the same time; (iv) since the departure o f the FMA, the internal audit function i s managed by a team o f two individual consultants (e.g., one senior internal auditor and one assistant); the current team will be strengthened by the selection o f an additional qualified auditor with engineering skilled and qualifications.

Financial statements o f the Program have been audited every six months since project effectiveness. However, due to the satisfactory FM performance o f the FSRDC, the project

27

accounts will be audited o n an annual basis and the external audit reports are submitted to IDA within six months after the end o f each year. The last audit report o f project financial statements for the period ended December 31, 2008 was unqualified (clean). There is no overdue audit report at the time o f preparation o f this additional financing. Finally, the resources o f the additional financing will be subject to technical auditing.

D. Funds Flow and Disbursement Arrangements

Disbursement methods

Upon Grant effectiveness, a transaction-based disbursement method (replenishment and reimbursement) will be used during the first six months o f project implementation. Thereafter, the option to disburse against submission o f an Interim Financial Report (also known as the Report-based disbursement method) could be considered subject to the quality and timeliness o f IFR submitted to the Bank and the overall financial management arrangement as assessed in due course. If and when report based disbursement i s adopted, the DA ceiling will be equal to the cash forecast for two quarters as provided in the quarterly Interim Financial Report. The option o f disbursing the funds through direct payments to third party o n contracts above a pre- determined threshold for eligible expenditures will also be available, Another acceptable method o f withdrawing proceeds from the IDA grant i s the special commitment method whereby IDA may pay amounts to a third party for eligible expenditures to be paid by the Recipient under an irrevocable Letter o f Credit (LC).

Designated Account

A Designated Account denominated in U S Dollars will be opened in a commercial bank on terms and conditions acceptable to IDA. This designated account will finance al l eligible project expenditures under the components and would be maintained by the FSRDC under the responsibility o f the coordination team. An initial advance US$4.3 mi l l ion equivalent to six (6) months expenditures forecast will be released by IDA at the request o f the project upon effectiveness. The Designated Account will be used for al l payments less than 20 % o f the deposited amount and replenishment applications will be submitted, o n a monthly basis. Additional advances into the Designated Account will be made against withdrawal applications supported by appropriate documents as specified in the Disbursement Letter.

Disbursement of funds to Decentralized Project Coordination Antenna

Funds will be disbursed to decentralized entities on the basis o f three months budget depicted under a Work Plan. Acceptable commercial banks operate in most o f the provinces selected to implement the project. Therefore, the funds will be transferred into accounts opened in these commercial banks acceptable to IDA. For the 3 provinces where there is no acceptable commercial bank, the funds will be transferred in accounts already opened in financial institutions “money transfer agencies” acceptable to IDA. The submission o f accountability (supporting documents o f expenditures) for previous advances will not be a condition for paying subsequent request for replenishment o f the Provincial antenna. However, replenishment o f each

28

provincial bank account will be made on the basis o f two documents: (i) a statement of expenditures depicting the expenditures made and classified by category or component o f the grant; and (ii) a summary showing the total amount received, the expenditures made classified by category and project components, the closing cash balance and the forecast for the next three (3) months. The balance between the next three months forecast and the closing cash balance o f the bank account will constitute the amount to be transferred to the provincial office/antenna.

Amount of the Grant

Allocated (expressed

in SDR)

17,400,000

To ensure accountability before the annual audit, the internal auditor will include in its work program regular field visits to decentralized officedantenna to review the eligibility o f expenditures incurred at these levels. The TORS o f the external auditing will also cover expenditures incurred at decentralized level.

Percentage of Expenditures to be

Financed (inclusive of Taxes)

100%

Disbursement categories

The grant will finance 100% o f eligible project expenditures inclusive o f taxes and in l ine with the disbursement categories included in the table below.

Category

(1) Micro-grants under Component A.l and Component A.3 of the Project

(2) Goods, consultant services and Operating Costs for the Project (other than for Components A.2 and C o f the Project and other than as covered by Micro-grants) TOTAL AMOUNT

22,600,000

29

Procurement arrangements

Institutional arrangements

Given i ts satisfactory performance to date, the project coordination unit o f the initial project (FSRDC) will remain the I procurement agent for the additional financing until the new+ institutions recommended by the new national procurement law are in place; at this time, a decision will be taken on the most appropriate approach to be used.

Procurement methods to be used

There will be no major changes on how procurement will be carried out. However, on the issues o f procurement procedures and processes, the procurement activities under the Additional Financing wi l l be carried out in accordance with the Bank’s guidelines “Guidelines: Procurement under IBRD Loans, and IDA Credits ” dated May 2004, revised October 2006; and

May 2004, revised October 2006, as well as the provisions stipulated in the Financial Agreement. The existing Project Operational Manual (POM) has already been complemented by a section covering labor-intensive public works but will be updated to define simplified procurement methods for the pilot labor intensive public work program. Should there be activities that are jointly financed with other entities (government, donors or private organizations), the procurement process will always follow Bank rules and procedures.

“Guidelines: Selection and Employment of Consultants by the World Bank Borrowers j J dated &. .

The national procurement code

The Government i s currently working on a new procurement code and progress in implementing the action plan for this reform i s very encouraging. I t i s expected that the new code w i l l be approved and implemented on March 31, 2010. The most important steps achieved to date include the following: (i) the draft national procurement code has been completed and submitted to the National Assembly for final review and approval; (ii) the highest authorities o f DRC have demonstrated that they are very committed to the reform agenda (e.g., the National Assembly will have a special session to discuss the proposed new national procuremknt code); and (iii) funds will be available to put in place the new institutions (contract committees within the l ine ministries, prior reviewing entity and regulatory body), train staff and conduct the first audit o f the system. Therefore, once the new procurement code i s adopted by the Government and has been reviewed and found satisfactory by the Bank, it will be applicable to all contracts that are not advertised internationally. For this purpose, the Bank procurement team will identify and clarify clauses o f the said code that are not entirely or partially applicable to a Bank-financed project, and propose appropriate modifications. These modifications would be set out in an agreement between the Government and the Bank.

Procurement plan

The Borrower has developed a procurement plan for the implementation o f the Additional Financing, covering at least the first 12 months o f the Project, indicating the pro curement

30

methods to be used for each activity. The Procurement Plan will be updated, with the prior

Procurement Method

(a) International Competitive Bidding (ICB)

(b) National Competitive Bidding

approval o f the Bank, on an annual basis or as required by the Bank-to reflect the implementation needs and improvements in institutional capacity.

Procurement methods and Bank review

(a) Contracts for goods and works

Threshold for the method in 1000 US$

US$3,000 or more for works, USD 500 or more for goods other than

drugs and USD 300 for drugs All contracts estimated below the ICB

project

(c) Shopping threshold and above shopping ceiling Below US$ 100 for works and US$

contracts

Bank review in 1000 US$

Al l contracts

( d) UN procurement agencies (e) Community participation in procurement (f) Direct contracting

The first two

50 for goods Post review

Post review

No threshold All contracts

NIA Implementation manual to determine

the process

'

Threshold for the method in Bank review in 1000 Procurement Method 1000 US$ US$

(a) Selection based on quality and No threshold A l l contracts estimated cost above US$ 100

(b) Least Cost Selection (LCS) (c) Selection Based on

Consultant Qualifications

No threshold All contracts estimated above US$ 100

100 All contracts estimated above US$ 100

(SQC) No threshold All contracts estimated

The agreed and approved procurement plan will determine procurement methods and the contracts to be submitted to Bank prior review and no objection.

(d) Individual Consultants (0 Single Source Selection

The Bank standard bid documents for goods and the one for works and the bank standard RFP (Requests for Proposals) will be used for all ICB contracts and contracts for consultant advertised internationally. The same documents wi l l be used for contracts advertised locally until the country has i t s own standard documents found acceptable by the Bank. For the purpose o f clause 2.7 o f the consultant guidelines, for all contracts estimated below the equivalent value o f US$ 75,000 the short l i s t may comprise only local f i rms

above US$50 N o threshold All contracts

31

Annex V I Update on Key Results PASU

PDO Improved access o f the poor to social and economic services and increase the availability and management o f development resources at the community level

Component 1 : Social economic infrastructure bui Wrehabilitated.

34% increase in primary school enrollment increased 92% increase in the number o f medical consultations ; 171% increase in the number o f assisted births 77% increase in access to clean water; 70% decrease in incidences o f water related diseases 100% increase in the number o f traders with access to stalls at the market 649 communities with improved capacity to plan, implement and manage their economic and social infrastructure

As o f December 2009,203 projects are completed, 41 7 projects under implementation and 27 projects are approved and waiting to be processed.

Number o f sub-projects completed per sector as o f September 2009:

Education sector: 61 completed, 296 in progress and 39 pending projects Health: 17 completed, 65 in progress and 4 pending Water: 48 completed, 21 in progress and 5 pending Bridges: 6 completed, 25 in progress and 3 pending Markets: 11 completed, 33 in progress and 2 pending Energy:2 completed, 6 in progress and 3 pending Environment: 1 completed Micro gardening: 1 completed 649 communities benefiting from at least one sub-project

FSRDC: Ongoing throughout project MIS,-beneficiaG assessments, yearly reports to the Board o f Directors, midterm and final evaluations reports. Data from Government and development partners as available.

Data Collection and Reporting

Sub project completion reports from project MIS

32

Intermediate results

Component three (3): Communities have increased access to social services

ComDonent four (4): Project successfully and cost-efficiently implemented in a decentralized manner

Results indicators for each component

433 libraries established during the project; over 97% o f subprojects maintained one year after completion 7392 scholarships provided to students Baseline and annual surveys provide regular monitoring and evaluation o f project impact Processing timelines for sub- project activities successfully met Operating costs are at 20% o f total project investments FSRDC i s represented and functions efficiently and autonomously in all 1 1 provinces Number o f sub-projects, ALES, and sub-contractors based in remote and impoverished areas (to be specified)

Data Collection and Reporting

Mid-term and final project evaluation, beneficiary assessments/perceptio n surveys

Mid-term and final project evaluation, beneficiary assessments/perceptio n surveys, FSRDC financial and technical reports

33

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DEM. REP.OF CONGO

This map was produced by the Map Design Unit of The World Bank. The boundaries, colors, denominations and any other informationshown on this map do not imply, on the part of The World BankGroup, any judgment on the legal status of any territory, or anyendorsement or acceptance of such boundaries.

0 100 200 300

0 100 200 Miles

400 Kilometers

IBRD 33391R1

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DEMOCRATIC REPUBLICOF CONGO

SELECTED CITIES AND TOWNS

PROVINCE CAPITALS*

NATIONAL CAPITAL

RIVERS

MAIN ROADS

RAILROADS

PROVINCE BOUNDARIES**

INTERNATIONAL BOUNDARIES

*The creation of 26 new Provinces was approved by the ratification of the 2005 Constitution, to take effect by February,2009. The existing 11 Province Capitals, shown with green circles, will retain their status, with the exception of Bandundu.Future Province Capitals are shown with white circles.

**The existing 11 Province boundaries and names are shown in dark green; future in light green.