37072 264 Human Development July 2006 Findings reports on ongoing operational, economic, and sector work carried out by the World Bank and its member governments in the Africa Region. It is published periodically by the Operations Results and Learning Unit on behalf of the Region. The views expressed in Findings are those of the author/s and should not be attributed to the World Bank Group. The Tanzania Social Action Fund (TASAF): owning the process of measuring impact1 and achieving results Social funds seek to protect the poor, ing Zanzibar). A Community Needs not through relief or welfare hand- Assessment had found that com- outs, but through investments people munities had low trust in existing chose in order to guard or improve institutions. This caused the au- their well- being. thorities to create a new institu- tion to manage the Social Fund. Origins and design of the Tanzania Implementation started in Novem- Social Action Fund ber 20003. To jump start the pro- cess, the Tanzanian authorities When the President of Tanzania had secured a $1.5 million prepa- visited Malawi in 1998, the ration facility from the World Bank Malawian President took him to to pilot $5,000 equivalent projects see communities supported by the at the community level. The re- Malawi Social Action Fund sults were impressive: within six (MASAF). This resulted in the Gov- months, communities had already ernment of Tanzania ( GOT ) re- built simple classrooms, water questing the World Bank to send points, dispensaries, and other the same team to help it create a works. In 2003, the President of similar social fund to help commu- Tanzania described TASAF as a nities contribute to their own de- mechanism to `deliver tangible ben- velopment. efits to communities while awaiting At the time TASAF was designed, longer-term benefits from macro-eco- about half of all Tanzanians were nomic reforms'. living on less than $1 a day, with limited access to basic health, edu- 1 Intermediate outcomes are those, for example, where cation, water, and other social ser- people benefit from a health centre that is closer by; impact vices. As a result TASAF had two outcomes where health improves as a result of improved financing windows: (i) a Commu- access. Intermediate outcomes measure `potential' and nity Development Initiative to im- impact outcomes measure `realized' benefits. prove public social service infra- 2 The cash-for-work wage rate was set 20% below the Findings structure; and (ii) a Public Works market wage for casual work, to ensure only the very poor Program for Local Governments to without other employment were attracted to such work, target food-insecure areas with- giving rise to a wage that was self-targeting to the very cash-for work2 in creation of pro- poor. ductive assets-creation. TASAF 3 TASAF I financing included $8.6 million community contribution, $3.1 million from GOT, and $60 million from was targeted to the poorest 40 dis- the International Development Association (IDA). tricts (plus the two Islands compris- TASAF was also designed to as- cured, and how they were spent. In the four years of implementa- sist communities cope with the Metaphorically, this was like tion, TASAF resources have al- consequences of HIV/AIDS. Or- counting the numbers of meals of lowed communities to construct phans, especially, were expected to beans (inputs) and the number of over 1,704 sub-projects (Table 1). benefit indirectly from the safety people with full bellies (outputs). While sector targets would have nets elements. However, it gradu- The ability to measure was itself been inappropriate to set in ad- ally became clear that neither the an achievement, given past diffi- vance, given the demand-driven two financing windows was able to culties with measuring outputs at approach, between 2 and 2.7 mil- respond in any significant way to the village level in Tanzania. lion people benefited from `poten- the needs of those affected by HIV/ During TASAF preparation, com- tially improved access' to services. AIDS. It was also assumed that munities had demonstrated their In order to establish whether this many NGOs would respond, by pre- ability to manage and account for potential has been realized, follow- paring proposals for community results: `beans and full bellies'. It up surveys document the current work ­ this did not materialize, as was also revealed that assets status of these assets. Education few NGOs operated in the targeted needed to be grouped to have maxi- received the largest share, followed areas. It also became clear that mum impact, e.g. classrooms by health, water, and roads. In- communities were not so keen to needed a water point, desks, vestments under the Social Sup- engage NGOs whose administra- teacher's house, toilets, to en- port Program were smaller and tar- tive overheads consumed a large hance functionality and maintain geted at those whose vulnerability share of the projects ­ as the a higher level of productivity. reduced their chances of making project size was a maximum of full use of assets created under Results: My six grandchildren and T.sh.20 million, equivalent to either the Public Works or Com- a cow* named Furaha (extract about US$20,000. It also became munity Development financing from TASAF News, June 2005) clear that Local Governments did windows. The Social Support win- not have the appropriate mecha- Majala Mtwana (75) is one of 45 widows of dow accounted for 4.6% of the CDI nisms to engage NGOs. Accord- Vikawe Village in Kibaha Districts who total outputs, but 2.9% of the bud- currently earns $2 a day from the sale of ingly, it was decided to pilot a So- get. milk. In her words, handling such money cial Support Program in four dis- in the past was a mere dream, and she is tricts where communities had now able "to provide enough food for her Table 1. Sector breakdown of household and for buying clothes and TASAF I sub-projects made many requests to be funded school requirements for her six grand- on account of the large number of children under her care". She explained households affected by HIV/AIDS. that the women chose dairy farming These districts were selected in because they had seen other people earning good income from sale of milk and they consultation with the Tanzania wanted to have milk for their household Commission for AIDS (TACAIDS), and at the same time get manure for who contributed resources for the improving their agricultural land in order to boost crop production. "We started our mobilization of communities to project in April 2004 whereby each use the TASAF. household got one dairy cow. My cow, which I named FURAHA (happiness) got a Results: Beans, full bellies, and calf two months ago and gives me an productivity average of 10 litres of milk per day. Eight litres are for sale and household use while two litres are left for baby cow. "Coming In programs such as TASAF, fi- from the Wazaramo tribe, we traditionally nancial inputs (cash) and physical fear cows and run away when we see one. outputs (e.g. schools, water pumps, But right now members of my group have got used to handling the animals and we health clinics) are the traditional Early survey results indicate that are now at par with tribesmen in up- measures of results. TASAF inputs country livestock areas". most water points are functioning and outputs were tracked, moni- with effective community opera- *The practice adopted by these projects is tored and evaluated in two ways ­ tion and maintenance arrange- to feed animals in a shed rather than open how physical outputs were pro- grazing. ments. However, of the 328 health facilities built under TASAF I, domestic water points 161,750 ployed personnel to be accountable nearly half were not fully staffed, Irrigation schemes 22,000 to the electorate. TASAF II has owing to chronic shortages of fused these two processes by mak- community markets health care personnel throughout 48,000 ing Local Government personnel Tanzania, most notably in the Roads 612,000 accountable to the beneficiary com- poorer areas. As a result the au- natural resources projects 29,000 munities through their role in fa- thorities decided not to build new cilitation and appraisal of commu- HIV/AIDS prevention 30,000 health facilities under TASAF II nity programs; public monitoring is until the existing ones were fully carried out by Local Government staffed and supplied with drugs. In Households with improved access to:- elected representatives. education, outcomes range from water for livestock Local Government capacity re- improved school enrolment num- from earth dams 82,000 mains severely hampered by poor bers to better pass-rates. Of food storage facilities 3,000 funding. This is compounded by course, these outcomes cannot be the lack of an independent tax- Children with improved access to:- wholly attributed to classroom or base, as well as insufficient and other infrastructure. School atten- Learning environment untimely transfer of central gov- (classrooms) 116,370 dance is the product of many ele- ernment funds. These factors un- ments ­ e.g. food availability, pres- Sanitation (VIPs) 23,775 dermine effective accountability at ence of a care-giver at home, addi- the local government level. TASAF Teachers with improved 670 tional school services covered by housing is contributing to improved ac- additional charges, distance, countability through a develop- Health staff with household status and exogenous 1,533 Improved housing ment communication strategy. shocks. The Ministry of Education Under TASAF I, this did not reach Orphans reached is discussing these issues with with support 1,260 its full potential, as two-thirds of various Government departments the country was not covered. In Widows with access to make sure that more children to higher incomes 864 addition, there was not a clearly- get access to the range of support defined role for Village Govern- Elderly with access services that encourage school at- to support 468 ment leadership (Village Councils). tendance. Investments under the A third challenge was the inad- social support program window re- Disabled reached with support 106 equacy of information on sector main in use. According to the strategies (norms and guidelines) evaluation report (reference), the Under-fives reached in a form that communities could with ECD centre 57 main challenge remains finding understand and apply. market outlets. Investments un- Totals 2,692,853 Notwithstanding these con- der the Public Works window also Note: Intermediate outcomes straints, communities and local remain in use, and some are be- calculated using sector population institutions (at village and district ing used to increase agricultural norms. levels) have been demanding pro- production, notwithstanding prob- gressively greater accountability lems of market access. While Accountability and decentraliza- from their Management Commit- TASAF has contributed to `interme- tion tees. Some have required either diate outcomes' and impacts (Table refunds (if committee members 2), the situation could be improved. TASAF requires that the recipi- were seen to spend too much on ent communities establish Com- bus fares, for example) or evidence munity Management Committees that committee members had not Table 2. Intermediate outcomes to manage the funds and be ac- spent project funds on personal (potentially improved access) countable to the community. The assets (such as mattresses or Indicator Population Tanzanian decentralization of other furniture). Population with improved access to:- functions to local government level requires their elected and em- health OPDs 1,560,000 National Strategy and Millennium ing on to the next levels. Importantly, on the Tanzania Forestry Conservation and Management Development Goals theyouthfocusgrouprevealedsexual Project (TFCMP) from Christian Albert Peter, Senior Forestry Specialist : cpeter@worldbank.org, and on the Tanzania's National Strategy for abuse being committed by teachers - TASAF II from Nginya Mungai Lenneiye, Sr. Protection Growth and Reduction of Poverty this was known but not previously Specialist: nlenneiye@worldbank.org and Ida Manjolo, (NSGRP)4 of June 2005 has set discussed at the community level6" Social Protection Specialist: imanjolo@worldbank.org. ambitious targets up to the year TASAF provides growing evidence 2009/2010. Citizen participation that communities are starting to References: is an underlying theme to foster explicitly own the process of ownership of strategies, programs, achieving and measuring results GoT (2005) National Strategy for and outcomes. and holding their local leaders Growth and Reduction of Poverty TASAF is now in its second more accountable. TASAF II has (NSGRP), Vice President's Office, phase, covering the period 2005- increased the emphasis on in- Dar-es-Salaam, June 2009. It is focused on giving more comes poverty, with communities GoT (2005) "Implementation voice to citizens at both commu- encouraged to engage in creating Completion Report for TASAF nity and lowest local government productive assets that enable par- (2000-2005)," Dar-es-Salaam, June levels - village councils5. While ticipating households to increase Kusek, J. and Rist, R. (2004) Ten retaining direct community fi- their incomes. The provision of steps to a results-based monitoring nancing as a key empowering additional financing and technical and evaluation system, World Bank, mechanism, it is being imple- resources under two other projects Washington, DC. mented through Local Government (Community Forestry, and Marine Authorities. Target beneficiaries and Coastal Environment Manage- This article was written by N.M. are: i) communities with inad- ment7) gives extra impetus to in- Lenneiye, (2005) "Who has the yam, equate access to social services; come growth in communities and who has the knife: Social Action ii) households with able-bodied whose livelihoods are affected by Funds and decentralization in adults suffering from food insecu- sustainable environment policies Malawi, Tanzania, and Uganda", rity; and iii) individuals living in that discourage overexploitation of Social Protection Discussion Paper poor households affected by acute the forest and marine resources. No. 0518, Social Protection Network, shocks (like HIV/AIDS). These 3 World Bank. TASAF Newsletter, spe- beneficiary groups will access re- 4 MKUKUTA (Mpango wa Kukuza Uchumi na cial edition, June 2005, President's sources from a National Village Kupunguza Umaskini Tanzania) in Kiswahili, issued by Office, Dar-es-Salaam. Fund using procedures that build the Vice President's Office, United Republic of Tanzania, on the lessons learned regarding Dar es Salaam. 5 Village Councils consist of up to 25 persons elected by For further information on TASAF, please accountability, incomes poverty, contact: all adult residents of a rural village. and improving impact links. S. B. Likwelile, Executive Director of TASAF 6 Sey, Haddy Jatou (2005) report on "Tanzania Workshop email address: tasaf@ud.co.tz on Local Government and Community Collaboration for Whose results are these anyway? World Bank Tanzania Country Office, Dar- Accountability and Cohesion" 20-24 June, Dar es Salaam. es-Salaam: 7 TASAF II has $150 million, the Marine and Coastal N.M. Lenneiye, Sr. Social Protection Specialist Communities have consistently (nlenneiye@worldbank.org) Environmental Management Project (MACEMP) $ 51 expressed their satisfaction with I. Manjolo, Social Protection Specialist million, and Tanzania Forestry Conservation and (imanjolo@worldbank.org) TASAF I outputs. With TASAF II, Management Project (TFCMP) $ 31 million through discussions are moving more to TASAF to communities for sustainable exploitation of higher order issues of outcomes. marine and forestry resources. The OPEC Fund has put During a recent training workshop aside a similar amount for two of the poorest Coastal on social accountability, "... note- regions: Lindi and Pwani. The Community HIV/AIDS worthyoutcomesincludedstrongcom- Initiatives on Zanzibar (ZAC) has a pre-allocated amount munity appreciation for the existing of funding. Information on the Marine and Coastal hardware (quality of the school in- Environmental Management Project can be obtained from frastructure) but unacceptable qual- Indumathie V, Hewawasam, Sr. Environmental Specialist, Ihewawasam@worldbank.org; Jane Kibbassa, Rural ity of software (learning achieve- Development Specialist: jkibbassa@worldbank.org; that ments) - very few children were pass-