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The Joint
Monitoring Matrix The key management
tool to be used by Government and Development
Partners during the implementation of the Compact is
the Joint Monitoring Matrix (JMM). The JMM is an
annex to the International Compact for Iraq and is
what is known in development circles as a
Transitional Results Matrix (TRM).
TRMs are designed to help address key problems
in fragile stages by providing focused support to
nascent national leadership and developing
government administrations. TRMS aim to: i)
establish priorities in a simple calendar framework;
ii) manage expectations; iii) early identification
of overload and sectoral linkages; iv) highlight and
address lagging actions; and v) provide a structured
basis for dialogue with Development Partners (see
Box 1).
The JMM specifies sectoral goals and
benchmarks and the key actions required to achieve
these. The matrix identifies the Iraqi entities
(sector working groups, Ministries and agencies) and
the Development Partners (lead and supporting
donors) responsible for each benchmark.
The JMM is the primary tool to be used during
the elaboration, implementation and monitoring of
the Compact. Specific actions will be refined
and reviewed by working groups and through the
development of sector strategies and Detailed Action
Plans (discussed in the next section). The JMM is
intended to be a living document that is amended
from time to time as agreed by the Government
through consultation with Development Partners.
| Box 1: What
is a Transitional Results Matrix?
A Transitional Results Matrix (TRM)
is a planning, coordination, and
management tool that national
stakeholders and donors can use to
better prioritize actions necessary to
achieve a successful transition in
fragile states. The TRM helps to launch
and develop a poverty reduction and
development strategy approach in these
environments, either by acting as an
early framework to lay the groundwork
for a national development plan and/or
its operationalization.
TRMs are based on five principles,
derived from the Rome Declaration and
its harmonization agenda but adapted to
the circumstances of fragile states in
transition. Matrices tend to be
selective, integrated across political,
security, economic and social aspects of
recovery, nationally owned, and have
sufficient buy-in from Development
Partners. They promote the use of
outcome indicators and monitorable
targets, including intermediate
indicators to track progress of
programs. They function as a management
tool for strategic planning and
implementation monitoring and an
umbrella for donor coordination.
By providing a management tool,
the framework can become a compact of
joint responsibilities between country
authorities and the donor community.
By enhancing transparency across the
board, TRMs can create strong incentives
to achieve more visible results in
reform and reconstruction and provide a
basis for greater participation and
domestic scrutiny by civil society.
(See UNDG & World Bank, 2005a and Kusek,
J.Z. and R. C. Rist, 2004) |
Detailed Action Plans
The JMM is a more detailed
version of a TRM that are typically seen around the
world. This is appropriate as the current sector
strategies are not developed sufficiently to
facilitate higher level monitoring and evaluation.
Consequently, the JMMs are designed to help drive
the development of sector strategies and Detailed
Action Plans (DAPs) by providing a foundation
collection of sectoral actions supported by a set of
mutual obligations between the government and
Development partners.
DAPs provide more detail on the steps required to
meet the JMM actions and other priority actions
ministries/sectors are pursuing. They are intended
to provide greater clarity to those actually
responsible for implementing the Government’s
agenda.
Outcome Monitoring: Performance Indicators
Performance indicators should be developed at the
appropriate juncture within the context of working
groups and medium term reform programs. The JMM is
primarily action based management tool, however,
some performance targets have been established (e.g.
90% budget execution target for 2007). Initial
performance will be assessed on completion of
actions. As systems and administrative capacity
develops, establishment of baselines and monitoring
of outcomes from reform measures using performance
indicators can commence.
Financial
Information Systems
The Development Assistance Database (DAD)
will serve as a record of the international
community’s commitments under the Compact. The
primary purpose of the DAD is to provide the tool
necessary to assist the Government of Iraq with
efficient and effective allocation of all available
resources. The DAD will continue to develop in
parallel with the Joint Monitoring Matrix. The
decision on the scope and level of detail of
government and donor projects that will be collected
in DAD is pending.
In the meantime, to support coordination and
oversight of activities, working groups may need to
keep record of donor supported projects that are
planned and underway. The Government is working on
linking key elements of the ICI monitoring database
and the DAD. The Government is interested in
identifying, in the first instance, those projects
supported by development partners that are
contributing to ICI benchmark actions.
The DAD is also critical for Government in terms
of ensuring flow of resources and sustainability of
projects. Predictability of disbursement of donor
support for projects and programs affect the
implementation of specific line items in the budget,
where co-financing is required during the lifetime
of the project, and for related operational
activities following project completion. The method
of donor support is flexible, with varying degrees
of Government involvement in planning and management
of resources.
International Cooperation Directorate
The Ministry of Planning and Development
Cooperation (MoPDC) plays a key role in the overall
management of external resource assistance provided
to Iraq. To this effect the MoPDC is establishing an
International Cooperation Directorate (ICD) as a
tool to more effectively administer external
resources.
The ICD is expected to play an important role in
providing policy advice, strategic planning,
economic and financial analysis, as well as to
communicate and report aid utilization to a variety
of internal and external stakeholders. Initially,
the ICD is expected to consist of four core units:
- Project Screening and Appraisal Unit
- Project Monitoring and Evaluation Unit
- Donor Relations Unit
- Donor Assistance Database (DAD) Unit
Click here to go to The Development Assistance
Database (DAD) website
Budget and Accounting systems
The legacy
accounting system and the Iraqi Financial Management
Information System (IFMIS) are the accounting
systems that provide budget execution performance
information to working groups. In addition to the
monitoring of actions under the JMM, it is envisaged
that budget execution oversight will be a high
priority for each of the operationalized working
groups.
The budget management and compilation system
supports decision making related to sectoral,
regional administrative and economic resource
allocations. The strategy for the move to combined
sources budgeting and the enhancement and
implementation programs for systems continue to be
under development. The budget system is crucial
during the resource allocation process of the
Government and donor resources.
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