Welcome to NCDD, Cambodia D&D

Background
One Window Service Office (OWSO) project is a component of Demand for Good Governance (DFGG) project financing by grant of the Internstional Development Association (IDA) represented by World Bank (US$ 3,531,428) and by the Royal Government of Cambodia (US$ 1,230,287); the estimated cost is US$ 4,761,715 for 4 years, 2009-2012.

The most visible and well-known result of the district reform is the OWSO that has made a name for itself well beyond the borders of the two districts. The OWSO, as the name suggests, is a single office for delivery of certain administrative services commonly required by citizens and small business at the local level. It consists of a ‘front office’ for interacting with citizens, giving out forms and collecting documents, and a ‘back office’ which consists of ‘competent agents’ who are delegated here from the 6 line ministries that have transferred functions to the OWSO. The OWSO provides around 30 different services among others the registration of motorbikes, small shops and licenses for constructions for houses up to 500 square meters. The OWSOs in Siem Reap and Battambang have been in operation since early 2005

The thing that makes the OWSO unique in Cambodia is that the fees for the various services are transparent and are publicly displayed for all to see in the OWSO and the service is provided in a timely and consistent manner.

Be noted that, to study and develop the project proposal of OWSO/DO, and to continue to support the project that will be implemented from 2009-2012, National Committee for the Management of Decentralization and De-concentration (its name is now changed to The Nationa Committtee for Sub-National Democratic Development)  has formed the District Support Team according to decision No. 008 ssr/NCDD dated 22nd, January, 2008.
Project Development Objective
The objective of this project is to strengthen demand for good governance in selected districts in all provinces in the country by (a) responding to the needs of citizens and small businesses for certain administrative services to be delivered in an efficient, transparent, and accountable manner, (b) providing an avenue for mediating complaints and concerns of citizens and small businesses regarding the district administration, and (c) promoting awareness and participation of citizens in decisions, policies, and programs of district governments. It will achieve this objective through:
•    Establishment of a well functioning OWSO in one urban district of each province (likely the provincial capitals) of Cambodia (except Phnom Penh) and one pilot rural district in the country that will provide citizen friendly administrative services in a professional, efficient, transparent and corruption free manner,
•    Setting up of a DO office in each of the above districts to provide opportunities for citizens to voice concerns, complaints and ask for clarifications to a neutral and democratically elected mediator between them and the District Government,
•    Delegation of a wide range of appropriate services to the OWSOs, and enhancing the mandate and powers of the DO, and
•    Introduction of a range of citizen’s participation and information mechanisms such as annual citizen’s forums, an OWSO website, monthly office hours with the district governor, and quarterly business and community representative forums in each of the target districts.
Target Areas
This project will be implemented through out the country. In the first year, 2009, 9 municipalities districts in which 7 are the new target areas, are Battambang Municipality of Battambanag province, Siem Reap city of Siem Reap province, Suong municipality of Kampong Cham province, Stung Sen municipality of Kampong Thom province, Kartie municipality of Karatie province, Poy Pet municipality of Banteay Meanchey province, Peam Roa district of Prey Veng province, and Preah Sihanouk municipality of Preah Sihanouk province will be implemented the OWSO/DO project.. Second year, 2010, the OWSO/DO project will expand to 8 Municipalities districts khan; and 7 Municipalities districts khan will be expanded in the third year (2011).

Estimated Project Costs
The grand total budget of the project is USD 3,597,028.40 including USD 65,600.00 for pre-implementation activities. In addition to this budget the RGC has agreed to contribute USD 1,230,287.00.  This amount covers costs of OWSO offices in year 2 and year 3, recurrent costs of the OWSOs: 50% in year 3 and fully in year 4 and costs of MPBI and PMG for DST and OWSO staff members.
Project Description
To attain its objectives mentioned and taking into account the lessons learnt, the project activities will be focused on five main components. The first three of these represent the three core reforms that the project will introduce – introduction of the OWSO, DO, and new forms of people’s participation – and the results framework for the project are based on these. The fourth and fifth components relate to monitoring & evaluation, and learning, and project management respectively. These are the supporting components that would help to operationalize the reforms. These components are described in more detail below.
Component 1: Expansion and Strengthening of the OWSO
In response to the high demand for setting up OWSOs similar to that in Siem Reap and Battambang, the first component deals with extending the OWSO to one additional district in all provinces of the country. In addition, there will be two studies to look into the options for the Phnom Penh Municipality and a rural district and based on the findings of the latter a pilot rural OWSO will be attempted in year 3 of the project.

However, the intention is not to just copy the existing OWSO in Battambang and Siem Reap during the expansion, but rather it is to significantly improve and strengthen the OWSO in the new districts through a number of measures. These include a comprehensive training and capacity building program, expansion of competencies, delegation of competencies from at least three new ministries, and including a website and added information available at the OWSO.

The detailed activities involved in this component are as follows:

Activity 1: Establishment of Legal Framework for setting up and extending the competencies of the OWSOs.
The DST under NCDDS will handle the drafting of the legal framework for the extension and improvement of OWSOs and DOs to other districts. The table in Appendix 11 provides a list of all the legal decisions and Prakas that will be required at different stages of the project. Some of these will be covered during the pre-implementation phase of the project. For instance:
a)    The Establishment of Inter-Ministerial Technical Advisory Group and OWSO District Support Team;
b)    Sub-decree or decision of the RGC on the extension to targeted districts;
c)    Prakas on the set up and structure of OWSO of MOI;
d)    Prakas on the transfer of competences of the relevant Ministries to the district OWSOs.


The sub-decree on the extension and the Prakas on the set up and structure of the OWSO will be approved by the end of 2007 itself. After project implementation commences, the work on the legal and policy side will be undertaken by the DST along with the TAG and will focus on:
a)    Extension of competences. Together with the experts of OWSO Siem Reap and Battambang the NCDD will draft a concept of extension of competencies that have already been delegated. The NCDD will handle the drafting of the required parkas and the negotiations with the Ministries to extend these competencies as necessary to the new districts through the TAG and NCDD decisions.

b)    Provision of new competences. In year 1 the NCDD will draft a concept on the transfer of new competencies in the area of health, education and agriculture. The concept will developed in cooperation with representatives of business, NGOs and experts of the line departments. The NCDD will handle the drafting of the parkas and the negotiations with the ministries.

c)    Expansion number of ministries. Expand the existing numbers of involved ministries from 7 to 10 (include Agriculture, Health and Education).

Depending on the passing of the Organic Law, modifications or additional legal requirements may be considered by the DST.

Activity 2: Preparation and Renovation of OWSO buildings and Equipping of Offices.
Prior to the start of the project, as well as before each phase of expansion, the DST will assess all offices needs regarding constructions and renovations in each targeted district.

The OWSO buildings will be centrally located and be within easy reach. Each office will be renovated so that it has at least four rooms, two very large (front office and back office), a room for the head of the OWSO, and one for the DO. These specifications will be discussed with the Provincial and District Governors of all provinces and the target districts so as to ensure that they are able to release an adequate building for the OWSO’s purposes. As all OWSO buildings are meant to be on existing government property or renovations of existing buildings, no involuntary resettlement or relocation issues are anticipated.

The internal appearance of the OWSOs will be uniform and a common ‘symbol’ for all OWSOs will be developed. They will be, wherever possible, uniformly furnished as well. To ensure this, the internal architect and national and provincial infrastructure specialists in the NCDD (which handled construction of the ExCom Offices) will be used along with suggestions from the district governments themselves to help prepare this common look for the OWSOs prior to the effectiveness of the project. Design of new construction and renovation and preparation of bidding documents will be completed before project effectiveness, while actual construction and renovation will begin after implementation starts.

In order to ensure ownership and financial sustainability, the renovations and additional constructions of buildings of the OWSO facilities during year 1 and 2 will be covered by the project cost. In year 3 the costs will be covered by the RGC.

Each OWSO office will be well furnished and modern and it will get enough technical equipment for delivering the services in a professional way. Soon after the building renovations are complete, the furnishings and equipment for the OWSOs will be procured through the agreed procurement system and delivered to each office. Bidding documents for these will also be prepared prior to project effectiveness.


As was the case with the buildings, the recurrent costs of the OWSOs will gradually be transferred over to the RGC to ensure financial sustainability of these offices. It has been agreed that the project will cover only 50% of recurrent costs in year 3, and 0% in year 4 so that there is a complete transfer of budget to the RGC before the close of the project.

Activity 3: Staff training and Capacity Building.
As mentioned above, the OWSO model is a radical change from the current state of local service delivery in most districts in the country. Therefore, a very critical element of the project and the success of the OWSOs themselves, relates to training, generating awareness and capacity building of the OWSO staff, the district administration, and the Provincial administration as well in all the new districts and provinces to which the OWSO will expand. This training will be done in a phased manner – part of it conducted prior to the opening of the OWSO (during the construction phase), and part of it later as part of on-the-job mentoring as well as peer learning and exchange. Appendix 4 provides a complete list of the various training events that will be conducted as part of this capacity building program.

The training activities are to be handled by the MOI/NCDD’s DST, although an international curriculum development specialist and national advisor will be recruited to help design the materials and a series of ‘training of trainer’ (TOT) events will be taken up to ensure the smooth roll out of the capacity building program.

The specific steps involved in this activity include the following:

a)    Designing the Training Programs and Manual. The training programs and manual for prospective officers and staff of the OWSOs as well as for local authorities and officials of the line departments will be prepared. These activities will be completed before the start of the project.

b)    Identification of Trainers. The DST will identify the trainers that will carry on the training programs for the subsequent years of establishment of the OWSO/DO.

c)    Conduct TOT training. After the designing of the training programs and identification of the trainers, TOT training will be conducted for selected stakeholders of national level and all target provinces and districts. Refer to appendix 1 for subject and budget.

d)    Conduct training of OWSO staff. Direct or cascaded training methodology will be applied depending on various subjects.

e)    Organize study tour, internship and on-the-job training. During year one the Siem Reap and Battambang OWSOs can function as resource while year two and three the newly established OWSOs can host study tour and internship as well.

In addition to the above there will be some preliminary ‘sensitization’ that will be undertaken with the Provincial authorities in each of the targeted provinces by year. Learning activities will continue through annual forums and peer exchanges in later years of the project as well.

Activity 4: Provision of Additional Information at OWSO and Design of OWSO Website.
As part of the efforts to strengthen the OWSO so that it becomes more useful for citizens, efforts will be made to have available in the OWSO additional information available at the offices which could be of use to them. This would include information, forms, and fees for both services which can be delivered by the OWSO as well as services which will be provided at provincial level. Obtaining this information is not an easy task for citizens, nor it will it be for the DST to get it from the relevant Ministries. Therefore efforts through the TAG and NCDD will be undertaken to make the information on other services available at the OWSO so that citizens can at least conduct a ‘limited transaction’ on these.

This activity will also set up a website for the OWSO with links to individual districts so that there is an opportunity for citizens to have access to all this information on the web. Since the OWSOs will be completely equipped with computers, some selected workplaces will be networked so that procedures can be electronically executed as much as possible paving the way for future digitalization of transactions. A databank will also be constructed in which all registrations are saved and where possible, the communes’ registry of residents will also be incorporated in this databank so that OWSO customers can get a back-up access to their registry documents (like marriage and birth certificates) through this office.
In this way, the specific elements of this activity are:
a)    Information on other services. DST will work with the TAG and partner with other ongoing initiatives (such as the Council of Administrative Reform-GTZ study to produce a ‘Yellow Pages’ for Government Services) to find relevant information on fees, forms, and procedures for other services that are not offered through the OWSO available for easy access by citizens. Hard copies of forms and fees for all these services that are not delegated functions will be available to the citizens at OWSO.  
b)    The OWSO Website. During the first year of implementation, a Website for OWSO will be set up. All information on the OWSO, DO and other data related to situation of target districts will be made available in the Website, including the fees that are required and the necessary forms. In addition, the information, forms, and fee tables for the services, which are still under the responsibility of the provinces and departments, will be presented in the website as well.

Activity 5: Study on Potential OWSO Model for Phnom Penh.
The decision on opening an OWSO in Phnom Penh must be deferred because of a lack of basic information on the adequate model to use in a city that size, since the district/khan unit of operation may not be cost effective there. Therefore, the project will fund a study on the existing service delivery mechanism and structure of the Phnom Penh Municipality to find out the options for the establishment of OWSO.  This will include an assessment of costs of operation and study of other city level models being used in neighboring countries.

Based on these results the possibility of funding the implementation of an OWSO in Phnom Penh will be considered after the mid-term evaluation at the end of year 2 of the project. The funding for this will either require supplemental financing of the project or a re-allocation of budget away from other districts or cost categories.

Activity 6: Study on Potential Pilot OWSO Model for Rural Districts.
Similar to the above case, for piloting the OWSO in a rural district, the project will finance a study on the existing service delivery mechanism and structure of the rural districts to find out the options for the establishment of OWSO in year 2 of the project. This study will include the “demand side” analysis of what key services really require a OWSO as well as a “supply side” analysis of what would be the best system, for example a “mobile front office”. Lessons from other developing countries like India that have experimented with rural OWSO models will be drawn in and the support of other development partners such as GTZ, who may be working in this area will be sought.

Based on the findings, a pilot OWSO will be launched in a rural district in year 3 of the project and a budget for this that includes supplemental resources for the possibility of a mobile office has been allocated in the overall project costs.
Component 2: Extending and Strengthening the Capacity of the DO
The second component of the project deals with the replication and enhancement of the DO model to all the targeted districts of the project where OWSOs are being set up. As outlined in section 3.3, there are serious deficiencies in the way that the current DO model has been operating in the two pilot districts of Siem Reap and Battambang, and therefore the project will try and address these through various innovations, and then include a mid-term evaluation of progress and consider further options (including the possibility of disbanding the institution if it continues to not be considered effective based on citizen surveys).

As mentioned in the earlier recommendations, the DO will now become a “Citizen’s Advisor” for citizens of the targeted districts. In addition to the existing functions of the DO in Siem Reap and Battambang, following functions will be included:

To facilitate the extension of the DO with the above expanded role to the new target districts, the following key activities would be undertaken:

Activity 1: Design of a New Election System for the Ombudsman and Amendments to Existing Prakas
Given that the existing DOs in Siem Reap and Battambang were elected by the District Council, which is not included in the current project, an alternative method for DO elections needs to be devised. This should not, however, be a difficult task since the District Councils in the two pilot districts constituted of already elected officials and some nominated representatives. Therefore one can replicate the system and procedure by forming a ‘local election committee’ to elect the DO. This committee would include representatives of district, communes, NGOs, local business and other related associations. In effect, the committee would look the same as the ones that were set up in the pilot districts.

To establish this new election procedure as well as to allow for the expanded role of the DO, the Prakas and decisions regarding their set up would have to be amended. This will be done by the DST in cooperation with the TAG during the pre-effectiveness phase of the project.

Activity 2: Training and Election of Ombudsman
Once the new election system has been devised and approved, all participating groups in the target districts will get a basic training on the role of the DO and the election system. The phasing of this training will be done in the same way as for the OWSOs (i.e. 6 districts in the first year, 7 in the second, and 9 in the third). The DST will provide guidance and training to the target districts on the election procedures.

After the trainings, the various groups elect their representatives for the Election Committee; the various groups name their candidates and finally the Election Committee selects the Ombudsman. According to experiences in Siem Reap and Battambang, the whole process takes at least two months. The DST and the Provincial ExCom representatives will oversee the election process to ensure that it is fair and transparent

Activity 3: Setting up the Office of the DO.
As with the case of the OWSO, the DO will be given an office which is located in a neutral area, but close to the OWSO so that he/she can provide the supervisory role there. The office will also be equipped with the necessary furnishings and stationary. Although, the existing Prakas for the DO includes the provision of an ‘Assistant’ to the DO, this function will only be included after the mid-term evaluation of the DO if it is seen that there is a sufficient work program for an assistant to be justified.

Activity 4: Capacity Building and Support to the Ombudsman.
Once the DOs have been democratically elected in the target districts, they will be given training on their roles and responsibilities. The DST will further support their capacity through regular field missions and backstopping on their additional functions. With the help of the TAG and the DFGG Project Coordination Unit, links of the DO to other state institutions such as MONASRI and RNK will be ensured so that the additional roles and responsibilities of the DO can be performed. The DST will also link the DOs to other systems of accountability at local level such as accountability working group, which are run through the MOI.

For generating awareness and publicity about the DO, a communications campaign will be run for them (see component 3) and they will also be encouraged to do pro-active outreach to NGOs, communes, and the private sector.

Component 3: Implementing New Forms of Citizens Participation and Outreach
In every district where the OWSO and DO will be established, new forms of participation will be introduced. These will aid in improving the relationship between citizens and the administration, and they will offer the citizens’ possibilities to voice their problems, criticisms and concerns. They will thus allow for a more transparent district administration and encourage good governance and public administrative reform. What is more, in order to ensure for greater independence as well as promote state-non-state partnership, the management and running of these people’s participation measures will be given to local NGOs and to the DO rather than done via the NCDD or MOI.

The various forms of people’s participation and outreach envisaged are as follows:

Activity 1: Conduct of Annual Citizen’s Forum in Each Target District.
In all the districts in which the OWSO is opened, an annual citizen’s forum will be undertaken. This is a forum which is open to all citizens and covers issues related to the OWSO and DO offices and how these can be further improved, as well as other issues related to governance at the district level. The forum will be chaired by the District Governor. The organization of the forum will be contracted out by District governors to a local NGO as mentioned above.

A pilot test of these citizen’s forums is planned during the pre-effectiveness phase of the project in the two districts of Siem Reap and Battambang so that the lessons from there can be used to make these events more meaningful for citizens.

Activity 2: Conduct of Semi Annual Forum in Each Target District.
In order to get more sustained and targeted feedback, a quarterly meeting with business and citizen’s representatives will be set up at a more informal level. These quarterly meetings with business and citizen’s representatives will be organized by the District Governor, OWSO chief and DO to get periodic and frequent feedback on their operation as well as suggestions for improvement. They will become the basis for further work and research needed on issues such as management systems, licensing procedures, service fees, and extension of competencies at the OWSO, which will be fed back to the DST for discussion with the TAG and NCDD.

Activity 3: Conduct of Annual Good Governance Forum at National Level.
The stakeholders of OWSO and DO will participate and present the experiences and lesson learned on good governance in implementation of OWSO and DO to the good governance forum at the national level. The DFGG Project Coordination Unit is responsible to organize this Good Governance Forum. This forum will include a broad audience of all stakeholders and reflect on the Governance aspects of all components of the DFGG project.

Activity 4: Setting up of Monthly Citizen’s Hour (or Citizen’s Consultation) with the District Governor in Each Target District.
An additional mechanism to increase participation, awareness, and reduce the hurdles between the administration and the citizens is the citizen’s hour of the district governor. In Siem Reap and Battambang, these citizen’s hours now take place once a month, and when the district governor is busy, one of his deputies addresses this responsibility.  During these sessions citizens have the opportunity to consult, ask questions, get clarification or express concern with the Governor on any issue related to the OWSO, DO, or District Administration at large. This opportunity is made use of by citizens on a regular basis.  Over the course of the project, this mechanism will be applied in all target districts.

Activity 5: Conduct of Periodic Information Campaigns on OWSO and DO.
Directly after the opening of the OWSO, a weeklong information campaign will be executed to inform the citizens about the new institution. For this task, the districts will be provided with corresponding flyers, posters, and stickers. At the same time, in cooperation with RNK and other broadcasting stations Talk Back programs will run on the radio in which the district governor and the head of the OWSO make themselves available for questions from citizens. This information campaign will be conducted at least once per year/district, including schools, C/S Councils and other local institutions.

Wherever possible, the information campaigns for the OWSO will also be used to make the DO more widely known. In addition, there are, however, additional necessary efforts, such as Talk Back programs on the radio with the DO, a visit of the DO to all local NGOs, poster advertising with a short description of the responsibilities of the Ombudsman and stickers with a telephone number.
Component 4: Monitoring & Evaluation (M&E), and Learning to Ensure High Performance Standards in OWSO and DO
As the OWSO and DO model is relatively new in the Cambodian context and given that its success relies on it showing high business and ethical standards, the role of regular M&E and continuous ‘learning by doing’ is a core part of the project and a significant part of the project costs is being allocated to this. The M&E and Learning functions under the project will be handled both ‘internally’ and ‘externally’ through independent monitoring that is undertaken through a respectable NGO or research agency as well as a number of local NGOs (See Section 10 for the suggested tools for this purpose)

The internal M&E will be done by the monitoring and evaluation unit at the central level within NCDD, which will be responsible to document not only the achievements of the OWSO and DOs in terms of operational and performance indicators, but also to evaluate outcomes, efficiency and effectiveness and to learn lessons associated with good governance. In addition to this, at every level, there will be available staff responsible for M&E and supervision.  The M & E Unit will develop a framework for regular reporting to the NCDD on the input and output targets, the progress of implementation and achievement of outcomes. Output and selected outcome indicators will be monitored quarterly. The M & E and Learning Adviser based in the project coordination unit of the DFGG will help in the development of reporting formats and tools for M&E, and train staff in their use. These will provide the basis for monitoring the inputs, outputs, and outcomes, and assessing the efficacy of the project management systems.  The Adviser will also assist in data analysis, drawing conclusions and learning from the studies that will be conducted.


For the external or independent monitoring of performance of the project, a reputable NGO or research firm along with a set of local NGOs (operating at the provincial or regional levels) will be contracted to undertake a series of M&E tools including a baseline, mid-term, and end evaluation survey, annual ‘exit surveys’ and informal audits, participatory focus group discussions, and exit interviews during the different citizen and public forums. (See section 10 for a discussion of the tools envisaged).

The various activities involved in the M&E and learning part of component-4 include:

Activity 1: Finalizing the Design of the M&E System and Survey Tools and Instruments.
In cooperation with DFGG M&E advisor and a national TA advisor from the DST, the MOI will finalize the design of the M&E system for the OWSO and DO during the pre-effectiveness phase of the project. This will include the design of the various survey tools and instruments that will be used for monitoring performance. The OWSO and DO M&E system and procedures will be integrated with overall M&E framework of NCDD.

In close cooperation with PCSU, the design of the M & E and Learning Framework will be participative and will involve not only members of the Inter-Ministerial Technical Advisory Group (TAG), but also officers and staff of the existing M & E Unit of the NCDDS.

Activity 2: Selection of a Reputable NGO/firm to Design and Conduct Baseline Assessment.
An external agency will be hired by the NCDDS to conduct the baseline assessment for the target selected districts with the assistance of the M & E and Learning Adviser of the DFGG.  In this baseline assessment, the external agency will not only gather baseline indicators on the field using quantitative techniques, but also learning from the communities specifically those that have benefited from OWSO and DO in Battambang and Siem Reap. In addition, the assessment will also include those who have not experienced OWSO and DO services. Learning mechanisms will include qualitative methods such as focus group discussions, client exit surveys and client score cards, and case studies in the different communities to be surveyed. The indicators to be captured in the assessment will be drawn from the outcome indicators that were highlighted in the results framework for the project in section 2.

The writing of the TORs, hiring, and the actual conduct of the baseline study are all expected to take place in the pre-effectiveness phase of the project.

Activity 3: Implementation of Internal Performance Monitoring Activities.
With the assistance of the TA from the DFGG Project Coordination Unit, routine M & E activities will be carried out by the officers and staff of the OWSOs, the DST and M & E Unit of the NCDDS/PST based on the final M&E and learning system that is designed. See Section 10 for a list of performance indicators to be covered, responsibilities for collecting information, and the reporting system and schedule.

Activity 4: Implementation of External Regular Evaluation Tools.
A number of more evaluative and learning-oriented studies will be conducted by local civil society or non-government organisations (CSOs or NGOs) in each of the targeted districts. The methods and tools will be developed and tested in conjunction with PST M&E Unit staff. Support will be provided by the DFGG M&E and Learning Adviser.

These activities will cover all services provided by OWSO and DO, and methodologies will include the following:
a)    a voluntary client scorecard on the performance of the OWSO  - these will be collected in a box in each OWSO and  can be filled by any OWSO customer. They will be periodically analyzed and reported in the status reports of the office,
b)    an annual exit survey of OWSO customers, independent audit of OWSO efficiency and effectiveness, and review of DO actions – in this the CSO will use independent evaluators/enumerators to conduct randomized exit interviews, and do a quick audit of OWSO and DO records. One of these is expected every year in all target districts,
c)    a qualitative survey consisting of focus group discussions (FGD) and key informant/beneficiary interviews – this will be an annual survey carried out in only a sample of say 5 districts to provide more qualitative and analytical data on the performance of the OWSO, DO, and people’s participation measures and how these can be improved,
d)    a series of exit interviews and working group discussions – these will be held as part of the citizen’s forums and other people’s participation events to obtain community perceptions on the performance of the district administration in general, and the new reforms (like OWSO and DO) in particular.

These learning and evaluation activities are planned in all years of the project in a process of formative or real time evaluation. The resulting recommendations and lessons will be the basis for improving implementation of OWSO and DO during the four years of the project, and may justify the funding for further expansion. Results on outcome indicators for these studies will be included in the internal annual reporting that will be done by the DST.

The different forms of external monitoring and evaluation will be contracted out to local NGOs or they could be made into a single large contract based on the feedback received in the CSO consultations that will be undertaken prior to the Project appraisal.

Activity 5: Conducting Learning Activities
To support the cross/peer-learning across the target districts, periodic learning events such as study trips and internships will be undertaken (as also mentioned in activity 3 of component 1). These will become particularly relevant in year 3 and 4 when all the new OWSOs and DO offices become operational. The Provincial ExCom and DST teams will manage this cross-learning and it will also get support from the DFGG Project Coordination Unit.

Activity 6: Mid-Term Evaluation
The Mid-term evaluation will be undertaken at the end of the second year or beginning of the third year of the project implementation period. It will also be contracted out to a reputed NGO or research firm (the possibility of the same firm undertaking the baseline, mid-term, and end evaluations is also being considered so long as it meets procurement requirements).

The mid-term evaluation will only target the districts launched in the first year of project implementation and the two existing pilots as these would have had sufficient time for operating to pick up meaningful results. The format of the survey will be the same as the one used during the baseline assessment and it will inform the project on the progress in meeting the agreed upon outcome indicators in the results framework. The mid-term assessment will be used to decide upon some critical aspects of project design and implementation – e.g. should one continue with the DO (or what enhancements are required), what further improvements to the OWSO are needed, what will be the model for the rural pilot, will there be a re-allocation of budget to cover a OWSO model in Phnom Penh, etc…

Activity 7: End of Project Evaluation:
This evaluation will be conducted at the end of the project by an independent agency (possibly the one that undertook the baseline and mid-term assessments) to enable the RGC, WB and other development partners to evaluate end of project outcomes and impacts; assess efficiency, effectiveness and sustainability of OWSO and DO services; and consider further expansion and continuation of the project.

Component 5: Project Management
The General Department of Local Administration as the Secretariat of NCDD (NCDDS) will act as project implementation and executing agency. The NCDD has established an Inter-Ministerial Technical Advisory Group (TAG) and a District Support Team (DST) under direct supervision of the NCDDS to coordinate policy components of the project such as, preparation of legal frameworks, training, policy monitoring and evaluation, facilitating structuring and set up on OWSO and DO, preparing annual work plan and budget (AWPB), organizing and conducting workshops with related ministries and other partners.

NCDDS will use the structures and capacities of the existing Program Support Team (PST) of NCDDS to implement and coordinate the operational components of the project such as, implementing of the procurement plan, supervision and monitoring of contract implementation, fund transfer, facilitation of administrative matters, reviewing of ExCom progress and financial reports, preparing financial and operational progress reports to NCDDS.

At the Sub-national level, the existing structures of ExCom/PRDC will be used to facilitate the operational implementation of the project such as, preparing an AWPB, preparing and contracting sub-contracts with district/OWSO (if applicable), provision of technical support to district/OWSO, managing of project funds, reporting to NCDDS through PST and DST.

Using the above structures will reduce cost and also promote harmonization.  Resources that will be made available to the project management office will include coverage for external consultancy services, provision of administrative support, including the procurement of equipment, furniture, fixtures, and other requirements of the project component.
For Project Management, the following key activities are envisaged (more details on the roels of the different actors is provided in Section 9):

Activity 1: Establishment of the TAG.  
As explained earlier, the TAG led by MOI will consist of senior officials of the related ministries and institutions. The TAG may invite the representatives of civil society to join any meeting if necessary.

Invitations for establishing the TAG have already been sent out, and it is expected that it will become operational before appraisal of the DFGG project.

Activity 2: Establishment of DST.
The DST will be established by the General Department of Local Administration (GDLA) and consist of officials from various departments of GDLA.  The DST is meant to be the core division in the NCDD/MOI in charge of harmonizing all district level projects and initiatives that are being undertaken by the NCDD, starting with the OWSO-DO initiative under the DFGG project. It will largely be composed of permanent MOI staff, although supplemental contract staff may also be required in the initial years of project implementation to ensure that there is adequate capacity in the institution to implement all the project activities.

Activity 3: Recruitment of support staff and TAs.
Two staff will be recruited to work with PST and one additional staff for each ExCom/PRDC. These additional staff will support the PST and ExCom Units to assist in the additional workload of OWSO and DO project.

Two national advisers will be recruited to provide support to DST and international TA will be contracted on a need basis only.

Activity 4: Information/ participation strategy.
It is crucial for the entire project that people have access to information: know where they can get information and are fully aware of the mechanisms to voice their opinions, complaints or concerns. In order to facilitate this, an information/participation strategy and materials will be developed and prepared for implementation at National and Sub-National level. Both strategy and dissemination materials will be developed in a participatory way including OWSO/ DO, Province and national level.

The national level will provide technical support to the provinces and districts OWSO/DO to implement the information campaigns and participation strategies.

Referring to activity 5 in component 3, the information strategy will be implemented in close cooperation with other project components such as RNK, MONASRI etc.

Activity 5: Managing Procurement.
NCDDS/PST will be responsible for the procurement of goods and services of the central project office as well as for the OWSOs and DOs to be established in the target districts according to the procurement plan. Where possible, the procurement at the sub-national level will be handled by PRDC/ExCom.

Activity 6: Coordination and harmonization.
The OWSO and DO is one of the 5 DFGG components. In addition there are a number of other Governance related NGO and other projects operational in the various provinces. Coordination and harmonization will be an important aspect both at the national and sub-National level. The TAG and DST will assist NCDDS to coordinate all projects related studies, evaluations, missions, trainings, workshops and seminars. At the Sub-National level, the PRDC/ExCom as well as the district OWSO/DO will coordinate all activities to ensure a harmonized approach at the District and local levels.

The TAG and DST are also responsible to assist the NCDDS to harmonize other district-focused projects and programs supported by development partners such as district initiative, and the inter-commune program.

Key Benefits

The project is a key building block in the overall D&D strategy of the Royal Government of Cambodia (RGC). As the description of the institutional background shows, the Strategic Framework for D&D of the RGC has heavily drawn from the experience of the two pilot districts where the district reforms including the OWSO, DO, and People’s Participation measures were introduced. Now, depending on when the Organic Law on D&D is passed, the expansion of this project component will either provide a framework for further guiding its preparation or be the initial program in implementation of the Law at the district level. Either way, the project will provide a model of citizen friendly, transparent and accountable service delivery at the district level that will pave the way for further D&D reforms of the RGC.

The project will have a number of beneficiaries. These include:

Citizens: All citizens of the selected districts/khans profit very directly from better service from the administration, increased transparency and more possibilities to make themselves heard by the administration. Given the non-transparent and inefficient situation of service delivery in urban districts at present, the positive effects of the OWSO should arrive immediately upon its opening. Citizens of the districts where the OWSOs are opened will have an avenue to avail of certain administrative services in an easy manner with full knowledge of the process and the official fees involved – something that is not the current norm in Cambodia.

Small Businesses: Likewise, the owners of small businesses, workshops, restaurants, and guesthouses benefit in particular. They can register their businesses quickly and without trouble in a well-functioning OWSO. The Ombudsman also shows his value quickly even if it takes some time before the citizens ask him directly for help. His random inspections of the OWSO, alone, guarantee that the rules of the OWSO are abided by.

Local Authorities: Beneficiaries are also the local authorities in the districts/khans who receive these new structures. They get more competencies that they can administer in the interests of their citizens. They will be thoroughly trained in their new responsibilities, and when they fulfil their responsibilities well, they will notice the satisfaction of the citizens.

Civil Servants at different levels: The civil servants at different levels will also get a benefit. At the district/khan level, the district civil servants will be prepared under the framework of the DFGG project for the new tasks and they will receive a performance incentive according to their work in the OWSO. The staff at the national level in MoI, who will constitute the ‘district support team’ that will manage the project will improve their skills among others in project management, monitoring and evaluation and financial management. The civil servants of the provincial administration get an indirect benefit. In the long term, they will be relieved of service tasks and can concentrate on the coordinating responsibilities of the province.

RGC: Finally, the project also draws benefits at the RGC level as well. This is because, with the introduction of a transparent OWSO model for delivery of district level administrative services, the likely motivation of citizens and small businesses to abide by registration and licensing laws is expected to go up (through easier and non-corrupt procedures). In this way, the RGC is likely to get more revenue through the delivery of these local administrative services than it is getting at present through the ad hoc system where records of fees and procedures are not clear.

Focal Persons: Position:

1. Mr. Chan Sothea, Project Manager of OWSO/DO, and Permanent Member of PT/NCDD: Tel. 012 845289, Email: This e-mail address is being protected from spambots. You need JavaScript enabled to view it
3. Sreng Kimsrun, DST advisor, Tel.: (855-012) 892992, Email: This e-mail address is being protected from spambots. You need JavaScript enabled to view it