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Education,
Health and WASH in Somaliland
April 15 2012
UNICEF
Somalia
Study
on
Functional
Assignments
INCEPTION
REPORT
DRAFT
JPLG
i
Final
Report
CONTENTS:
EXECUTIVE
SUMMARY ......................................................................................................................VIII
LAW
23/2002
REQUIRES
URGENT
REVISION ..................................................................................................... X
STRENGTHENING
SECTOR
AND
LOCAL
GOVERNMENT
FINANCING
ARRANGEMENTS .................................................. XI
SUCCESSES
ARE
SHAPING
THE
PACE
AND
DEPTH
OF
SERVICE
DELIVERY ................................................................. XII
GENERAL
FINDINGS
FOR
THE
DECENTRALIZATION
PROCESS ............................................................................... XIII
1.
INTRODUCTION,
SCOPE,
APPROACH
AND
ECONOMIC
CONTEXT ................................................... 2
1.1
INTRODUCTION .................................................................................................................................. 2
1.2
SCOPE
&
RATIONALE ........................................................................................................................... 2
1.3
APPROACH
TO
UNBUNDLING
THE
SECTORS ............................................................................................. 3
1.4
GENERAL
ECONOMIC
FRAMEWORK........................................................................................................ 4
1.5
SOMALILAND
REVENUE
TRENDS ............................................................................................................ 5
1.6
SOMALILAND
EXPENDITURE
TRENDS ...................................................................................................... 5
1.7
FINANCING
THE
NDP
AND
EDUCATION,
HEALTH
AND
WASH
SECTORS ........................................................ 6
1.8
IMPLICATIONS
FOR
UNBUNDLING ........................................................................................................ 7
2.
CURRENT
FRAMEWORK
FOR
DECENTRALZED
GOVERNANCE....................................................... 11
3.
EDUCATION
SECTOR
ASSESSMENT
FINDINGS
............................................................................. 21
3.1
INTRODUCTION ................................................................................................................................ 21
3.2
EDUCATION
SECTOR
SERVICE
DELIVERY
CAPABILITIES .............................................................................. 22
3.3
MOEHS
ABILITY
TO
DELIVERY
SERVICES
EFFECTIVELY.............................................................................. 50
3.4
PROPOSED
UNBUNDLING
APPROACH ................................................................................................. 61
3.5
REVIEW
OF
FUNCTIONAL
ASSIGNMENTS ............................................................................................... 62
3.6
SERVICE
DELIVERY
MODEL
DEVELOPMENT ............................................................................................ 63
3.7
EDUCATION
SECTOR
PROPOSED
NEXT
STEPS....................................................................................... 64
4.
HEALTH
SECTOR
ASSESSMENT
FINDINGS .................................................................................... 69
4.1
INTRODUCTION ................................................................................................................................ 69
4.2
HEALTH
SECTOR
SERVICE
DELIVERY
CAPABILITIES ................................................................................... 71
4.3
MOH
ABILITY
TO
DELIVER
SERVICES
EFFECTIVELY ................................................................................... 93
4.4
PROPOSED
UNBUNDLING
APPROACH ............................................................................................... 100
4.5
REVIEW
OF
FUNCTIONAL
ASSIGNMENTS ............................................................................................. 101
4.6
HEALTH
SECTOR
PROPOSED
NEXT
STEPS .......................................................................................... 104
5.
WASH
SECTOR
ASSESSMENT
FINDINGS..................................................................................... 110
5.1.
INTRODUCTION .............................................................................................................................. 110
5.2.
WASH
SECTOR
SERVICE
DELIVERY
CAPABILITIES ................................................................................. 111
5.3.
MMEWR
AND
LOCAL
GOVERNMENT
DISTRICTS
ABILITY
TO
DELIVER
SERVICES
EFFECTIVELY ...................... 135
5.4
REVIEW
OF
FUNCTIONAL
ASSIGNMENTS ............................................................................................. 141
5.5
PROPOSED
UNBUNDLING
APPROACH ............................................................................................... 141
5.6
SERVICE
DELIVERY
MODEL
DEVELOPMENT .......................................................................................... 142
6.
RECOMMENDATIONS
FOR
STRENGTHENING
DELIVERY ............................................................. 150
REFERENCES..................................................................................................................................... 153
ANNEX
I
LIST
OF
KEY
INFORMANTS.............................................................................................. 157
ANNEX
II
DISTRICTS
&
GRADES
ACCORDING
TO
LAW
23/2002..................................................... 160
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ANNEX
III
JPLG
MEETING
SCHEDULE:
OCTOBER-
NOVEMBER
2011,
HARGEISA ............................ 162
ANNEX
IV
FOCUS
GROUPS
ATTENDEES ........................................................................................ 171
TABLES:
TABLE
1:
SOMALILAND
EMPLOYMENT
STATISTICS
(%)
(2002) ............................................................................................. 4
TABLE
2:
GOVERNMENT
REVENUES
(2005-2009)
............................................................................................................ 5
TABLE
3:
FUNCTIONAL
CLASSIFICATION
OF
STATE
EXPENDITURE
(2011)................................................................................. 6
TABLE
4:
ACTUAL
BUDGET
SURPLUS/
DEFICIT
(2005-2009) ............................................................................................... 6
TABLE
5:
PROPOSED
CAPITAL
INVESTMENT
BY
SOCIAL
SECTOR.............................................................................................. 7
TABLE
6:
SOMALILAND
NATIONAL
BUDGETS
BY
ENTITY
(2009-2011) .................................................................................. 8
TABLE
7:
GROWTH
AND
POVERTY
REDUCTION
POLES
(NDP
2012-2016) ........................................................................... 11
TABLE
8:
SOMALILANDS
REGIONS
AND
DISTRICTS
BY
GRADE
ACCORDING
TO
LAW
23/2002 .................................................. 12
TABLE
9:
SOMALILAND
PRIMARY
AND
SECONDARY
EDUCATION
ENROLMENT
(1995/6) .......................................................... 26
TABLE
10:
PRIMARY
AND
SECONDARY
EDUCATION
ENROLMENT
(2008/9).......................................................................... 27
TABLE
11:
SUMMARY
OF
SERVICE
PRODUCTION
FUNCTIONS .............................................................................................. 31
TABLE
12:
FINDINGS
FROM
HARGEISA ........................................................................................................................... 37
TABLE
13:
MOE
SOMALILAND
CONSOLIDATED
BUDGET
PROFILES
2009-2011
(SL.SH)......................................................... 38
TABLE
14:
FORECAST
CONSOLIDATED
MOE
BUDGET
2012 ............................................................................................... 40
TABLE
15:
INDICATIVE
PRIMARY
AND
SECONDARY
EDUCATION
SECTOR
BUDGET
AND
IMPLEMENTATION
MATRIX
(NDP) .............. 44
TABLE
16:
SOMALILAND
LEGAL/NORMATIVE
INSTRUMENTS
AND
MOE
SERVICE
DELIVERY....................................................... 47
TABLE
18:
KEY
FIGURES
ACROSS
LEVELS
OF
HEALTHCARE .................................................................................................. 79
TABLE
19:
ANTICIPATED
STRUCTURAL
CHANGES
UNDER
EPHS........................................................................................... 79
TABLE
20:
SOMALILAND
NATIONAL
AND
HEALTH
BUDGETS
(2009-2011)........................................................................... 83
TABLE
21:
MONTHLY
SALARY
SCALES
&
INCENTIVE
OR
SALARY
TOP-UPS ............................................................................. 83
TABLE
22:
PROJECTED
MTFF
BUDGET
CEILINGS
FOR
MOH
(2010
2013) ........................................................................ 84
TABLE
23:
AVERAGE
SALARY
RANGES
IN
SOMALILAND ...................................................................................................... 88
TABLE
24:
SOMALILAND
LEGAL/NORMATIVE
INSTRUMENTS
AND
MOH
SERVICE
DELIVERY ...................................................... 91
TABLE
25:
DEFINITION
OF
FUNCTIONAL
ASSIGNMENT
TO
DIFFERENT
LEVELS
OF
GOVERNMENT:
MINISTRY
OF
HEALTH .................. 97
TABLE
26:
POSSIBLE
HEALTH
PRODUCTION
AND
PROVISION
ASSIGNMENTS
FOR
SOMALILAND ................................................ 102
TABLE
23:
DEFINITION
OF
FUNCTIONAL
ASSIGNMENT
TO
DIFFERENT
LEVELS
OF
GOVERNMENT:
WATER
RESOURCES
DEPARTMENT 120
TABLE
27:
SOMALILAND
GOVERNMENT
AND
MMEWR
BUDGET
2009-2011................................................................ 128
TABLE
24
:
LEGAL
PROVISIONS
-
WASH ....................................................................................................................... 133
TABLE
25:
RECOMMENDED
SKILLS
&
STAFFING
LEVELS
FOR
WATER
RESOURCE
DEPT
STAFFING
SKILLS/LEVELS.......................... 147
TABLE
26:
DISTRICT
ADMINISTRATION
CAPACITY
ASSESSMENT
FRAMEWORK
SUMMARY ....................................................... 152
TABLE
27:
JPLG
MEETING
SCHEDULE ......................................................................................................................... 162
TABLE
28:
EDUCATION
FOCUS
GROUP
ATTENDEES......................................................................................................... 171
TABLE
29:
HEALTH
FOCUS
GROUP
ATTENDEES .............................................................................................................. 171
TABLE
30:
WASH
FOCUS
GROUP
ATTENDEES .............................................................................................................. 171
FIGURES:
FIGURE
1:
UNBUNDLING
SECTOR
PRODUCTION
AND
PROVISION
PROCESSES
HEALTH
SECTOR ................................................... 3
FIGURE
2:
SOMALILANDS
EXECUTIVE
STRUCTURE
(ILLUSTRATIVE)
....................................................................................... 14
FIGURE
3:
MAP
OF
SOMALILAND................................................................................................................................... 17
FIGURE
4:
SOMALILAND
-
MINISTRY
OF
EDUCATION
PROPOSED
ORGANIZATIONAL
STRUCTURE ................................................. 25
FIGURE
5:
PROPOSED
ORGANIZATION
OF
HIGHER
EDUCATION
IN
SOMALILAND ...................................................................... 29
FIGURE
6:
STRUCTURE
OF
NON-FORMAL
EDUCATION
DEPARTMENT
TO
MOE,
SOMALILAND .................................................... 31
FIGURE
7:
FINAL
STRUCTURE
OF
HR
DEPARTMENT,
MOE,
SOMALILAND............................................................................... 33
FIGURE
8:
DRAFT
STRUCTURE
OF
GENDER
UNIT,
MOE,
SOMALILAND .................................................................................. 34
iii
Study
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SOMALILAND
Final
Report
FIGURE
9:
PROPOSED
STRUCTURE
OF
DEPARTMENT
OF
QUALITY
ASSURANCE
AND
STANDARDS,
MOE,
SOMALILAND .................... 35
FIGURE
10:
PROPOSED
STRUCTURE
OF
DEPARTMENT
OF
FINANCE
AND
ADMINISTRATION,
MOE,
SOMALILAND ........................... 35
FIGURE
11:
PROPOSED
MOE,
SOMALILAND,
SERVICE
DELIVERY
STRUCTURE ......................................................................... 36
FIGURE
13:
THE
WHO
HEALTH
SYSTEM
FRAMEWORK ...................................................................................................... 69
FIGURE
14:
CURRENT
STRUCTURE
OF
SOMALILAND
MOH ................................................................................................. 74
FIGURE
15:
GOVERNMENT
HEALTH
POLICY
AREAS ........................................................................................................... 77
FIGURE
16:
FINANCING
FLOWS
IN
NATIONAL
HEALTH
SYSTEMS .......................................................................................... 87
BOXES:
BOX
1:
DISTRICT
CAPACITY
ASSESSMENT
SAMPLE
EDUCATION
FINDINGS ............................................................................ 46
BOX
2:
DISTRICT
CAPACITY
ASSESSMENT
SAMPLE
HEALTH
FINDINGS.................................................................................. 72
iv
Study
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SOMALILAND
Final
Report
Assessment'Team'
The$ study$ team$ was$ directed$ and$ led$ by$ Dr.$ Peter$ J.$ Middlebrook$ (Managing$ Director,$ Geopolicity),$ Dr$ Frank$
Dall$(EducaBon$Consultant),$Salem$Shouhan$(WASH,$Consultant)$and$Albana$Vuji$(Geopolicity$WATSAN$Expert),$
Dr.$Kees$Rietveld$(Health$Consultant)$and$Dr.$Peter$J.$Middlebrook$(health),$Andrew$Howstan$(Senior$Project$
Manager,$ Geopolicity),$ Diana$ Stellman$ (Senior$ Researcher,$ Geopolicity)$ and$ Saeed$ Ibrahim$ Caydid$ (Assistant$
Project,$Manager,$Geopolicity).$
Acknowledgments:'
From$ the$ Government$ of$ Somaliland,$ we$ wish$ to$ thank$ Rt.$ Hon.$ Abdirahman$ M.$ Abdillahi,$ Speaker$ of$ the$
House$for$his$useful$guidance$in$relaBon$to$legislaBve$provisions$around$local$government,$H.E.$Zamzam$Aden$
the$Minister$of$EducaBon$,$H.E.$Hussein$Mohamed$the$Minister$of$Health,$H.E.$Hussein$Dualeh$the$Minister$of$
MMEWR,$Abdullahi$H.$Ige$Director$General$Ministry$of$Interior,$Eng.$Hussein$M.$Jiciir$Mayor$of$Hargeisa$and$
the$heads$of$local$governments.$
From$the$United$NaBons$we$wish$to$thank$Maureen$Njoki$(UNICEF$JPLG$Manager)$and$Sarah$Elamin$Nginja$
(UNICEF$JPLG$Coordinator)$for$their$excepBonal$guidance$and$advice,$as$well$as$Nancy$Balfour$(UNICEF$$Chief$
of$ WASH)$ and$ the$ rest$ of$ the$ WASH$ team,$ MeXe$ Nordstrand$ (UNICEF$ Chief$ of$ EducaBon),$ Lisa$ Doherty$
(UNICEF$ EducaBon)$ Marla$ Stone$ (EducaBon$ Sector$ Coordinator)$ and$ the$ rest$ of$ the$ EducaBon$ secBon$ team,$
John$ Agbor$ (UNICEF$ $ Chief$ of$ Health)$ and$ the$ health$ secBon$ team,$ Osamu$ Kunii$ (UNCIEF$ Chief$ of$ ACSD),$
Hannan$Sulieman$(UNICEF$Deputy$RepresentaBve),$Debra$Bowers$(Chief,$Planning$Monitoring$and$EvaluaBon),$
Patrick$Duong$(UNDP$JPLG$$Senior$Program$Manager),$Joanne$Morrison$(former$UNDP$JPLG$$Senior$Program$
Manager)$and$Marina$Madeo$(Health$Sector$Coordinator,$UNOPS).$
Finally$ we$ wish$ to$ thank$ the$ many$ donor$ representaBves$ who$ providing$ valuable$ comments$ and$ feedback,$
with$ a$ parBcular$ menBon$ for$ Edda$ Costarelli$ (EEASZNAIROBI)$ and$ Paul$ Smith$ (EEASZNAIROBI)$ from$ the$
European$Union$for$valuable$insights$and$contribuBons.$
v
Study
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SOMALILAND
Final
Report
Abbreviations
ABE
Accelerated
Basic
Education
AET
African
Education
Trust
ANC
Ante
Natal
Care
CEC
Community
Education
Committee
CHW
Community
Health
Worker
DAD
Development
Assistance
Database
DC
District
Council
DG
Director
General
DEO
District
Education
Office/r
DFID
Department
for
International
Development
DHB
District
Health
Board
DHO
District
Health
Office
DMO
District
Medical
Officer
DVET
Directorate
of
Vocational
Education
&
Training
EFA
Education
for
All
EIA
Environmental
Impact
Assessments
EMIS
Education
Management
Information
System
EPI
Expanded
Program
on
Immunization
EPSH
Essential
Package
of
Health
Services
ESSP
Education
Sector
Strategic
Plan
FGM
Female
Genital
Mutilation
FMIS
Financial
Management
Information
System
FPE
Free
Primary
Education
GoS
Government
of
Somaliland
GPI
Gender
Parity
Index
GU
Gender
Unit
HAVOYOCO
Horn
of
Africa
Voluntary
Youth
Committee
HC
Health
Centre
HEC
Higher
Education
Committee
HMIS
Health
Management
Information
System
HP
Health
Post
HR
Human
Resources
HRD
Human
Resources
Development
HRM
Human
Resources
Management
HRMIS
Human
Resources
Management
Information
System
HSS
Health
Systems
Strengthening
HTs
Head
Teachers
HWA
Hargeisa
Water
Agency
IDPs
Internally
Displaced
Persons
INGO
International
Non
Governmental
Organization
ICDSEA
Integrated
Capacity
of
Somali
Education
Administrations
Program
IDA
International
Development
Association
JPLG
UN
Joint
Program
on
Local
Governance
and
Decentralized
Service
Delivery
LG
Local
Government
M&E
Monitoring
and
Evaluation
MCH
Maternal
and
Child
Health
Centre
MDG
Millennium
Development
Goals
MMEWR
Ministry
of
Mines,
Energy
and
Water
Resources
MoE
Ministry
of
Education
MoEHS
Ministry
of
Education
and
Higher
Studies
MoF
Ministry
of
Finance
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Final
Report
MoH
Ministry
of
Health
MoI
Ministry
of
Interior
MoLSA
Ministry
of
Labor
and
Social
Affairs
MTEF
Medium
Term
Expenditure
Framework
MTFF
Medium
Term
Fiscal
Framework
MoPD
Ministry
of
Planning
and
Development
MoPDE
Ministry
of
Pastoral
Development
and
Environment
NDP
National
Development
Plan
NER
National
Enrolment
Ratio
NERAD
National
Emergency
Relief
and
Disaster
Organization
NFE
Non-formal
Education
NGO
Non
Governmental
Organization
NHPC
National
Health
Professional
Council
NDS
National
Development
Strategy
O&M
Operation
and
Management
OECD
Organization
for
Economic
Co-operation
and
Development
PAR
Public
Administration
Reform
PENHA
Pastoral
and
Environmental
Network
of
the
Horn
of
Africa
PFM
Public
Finance
Management
PHU
Primary
Health
Unit
PPP
Public
Private
Partnerships
PPP
Purchasing
Parity
Price
PRA
Participatory
Rural
Appraisal
RC
Regional
Council
RDP
Somali
Reconstruction
and
Development
Program
REO
Regional
Education
Office/r
RHC
Referral
Health
Centre
RHO
Regional
Health
Office
RHB
Regional
Health
Board
RMO
Regional
Medical
Officer
SBM
School
Based
Management
SDA
Somaliland
Drug
Authority
SDM
Service
Delivery
Model
SEC
School
Education
Committee
SNEA
Somaliland
National
Education
Act
SNEP
Somaliland
National
Education
Policy
SWM
Solid
Waste
Management
TVET
Technical
and
Vocational
Education
and
Training
UN
United
Nations
UNDP
United
Nations
Development
Program
UNICEF
United
Nations
Childrens
Fund
UN-HABITAT
United
Nations
Human
Settlements
Program
UNDP
United
Nations
Development
Program
UNESCO
United
Nations
Educational,
Scientific
and
Cultural
Organization
USAID
United
States
Agency
for
International
Development
W&WW
Water
Supply
and
Wastewater
Services
WASH
Water,
Sanitation
and
Hygiene
WATSAN
Water
and
Sanitation
WB
World
Bank
WHO
World
Health
Organization
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Study
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SOMALILAND
Final
Report
EXECUTIVE
SUMMARY
ASSESSMENT
OBJECTIVE
The
objective
of
this
assessment,
according
to
the
Terms
of
Reference,
is
to
conduct
a
scoping
and
explanatory
study
to
help
identify
current
service
delivery
practices
and
capacity
within
the
existing
education,
health
and
water
sectors
in
Somaliland,
as
well
as
the
current
response
to
various
policy
documents
and
frameworks
adopted
by
the
sector
Ministries.
GENERAL
BACKGROUND
This
functional
assessment
of
the
Education,
Health
and
Water,
Sanitation
and
Hygiene
(WASH)
sectors
of
Somaliland
supports
sector
strengthening,
improved
service
delivery
and
the
identification
of
key
functional
assignments
at
the
regional
and
district
levels,
for
both
the
sector
Ministries
and
Local
Government.
This
assessment
report
brings
together
primary
and
secondary
data
from
a
three-
week
field
trip
to
Somaliland,
which
was
subsequently
strengthened
through
desk-based
reviews
and
three
workshops,
which
were
held
in
Nairobi
in
December
2011
and
January
2012,
and
in
Hargeisa
(4
day
sector
validation)
in
March
2012.
The
fieldwork
was
conducted
in
close
coordination
with
the
Government
of
Somaliland
(GoS),
and
included
field
trips
to
selected
regions
and
districts.
As
a
result,
this
assessment
not
only
describes
the
existing
service
delivery
models
and
practices
for
the
sectorsincluding
the
broad
functional
assignments
of
vertical
sector
ministries
and
local
governmentit
also
balances
sub-national
and
central
views
given
that
the
majority
of
regional,
district
and
local
government
structures
are
poorly
financed
and
frequently
unstaffed.
With
the
majority
of
production
(delivery)
services
provided
by
default
through
local
communities,
the
private
sector,
national
and
international
NGOs
and
international
donors,
Governments
role
(outside
of
paying
nominal
salaries)
is
largely
limited
to
policy
making,
planning,
budgeting
and
regulatory
oversight
and
coordination.
As
the
majority
of
sector
regional
and
district
offices
are
understaffed
or
not
staffed
at
all,
often
without
infrastructure,
transport
and
other
basic
necessities,
sector
delivery
is
poorly
regulated
and
fragmented.
Clearly,
unless
Government
(supported
by
donors)
outlines
the
preferred
service
delivery
models
for
the
sector,
including
the
functional
mandates
in
production
and
provision,
with
functions
being
closely
coordinated
with
Local
Government,
the
weak
regulatory
and
compliance
environment
will
continue.
Key
to
the
entire
narrative
presented
here,
is
an
understanding
of
why
Law
No.
23/2002
(which
provides
the
legal
basis
for
Local
Government)
has
only
been
partially
implemented,
and
how
best
to
focus
investments
at
the
local
government
level
whilst
also
building
core
sector
capacities
in
the
regions
and
districts.
Further,
with
a
view
to
formalizing
the
functional
assignments
of
regional
and
district
deconcentrated
sector
structures,
and
the
roles
of
local
government,
both
sectoral
and
cross-
sectoral
proposals
are
made.
These
include
removing
intra-governmental
fiscal
(revenue)
transfer
imbalances,
considering
sector
categorical
grants,
and
understanding
that
unless
service
delivery
models
are
quickly
agreed
and
provision
functions
strengthened,
early
prospects
for
improving
sector
delivery
will
be
thwarted.1
1
Sector
categorical
grants
appropriate
funds
for
a
specific
purpose,
and
frequently
require
the
local
government
to
provide
a
small
matching
grant.
Grants
can
either
be
made
through
formula
or
application.
Block
grant
or
broad
grants
are
less
specific
and
generally
preferred
by
local
governments.
viii
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on
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Assignments
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Final
Report
GENERAL
ORGANIZING
OBSERVATIONS
Central
observations
around
which
the
analysis
can
be
understood
are
summarized
below:
Form,
Function
and
Finance:
Whilst
form
should
be
determined
by
function,
and
function
similarly
determined
by
policy
mandate,
in
the
absence
of
sufficient
fiscal
resources,
setting
functional
assignments
without
recourse
to
available
resources
can
lead
to
systemic
failure.
As
a
result,
in
the
context
of
Somaliland
the
size
of
government
fiscal
resources
are
obviously
critical
to
determining
Governments
role
in
both
provision
and
production.
Currently,
most
regional
and
district
offices
are
either
poorly
staffed
or
completely
unstaffed,
and
even
though
the
functional
assignments
have
been
described
for
different
levels,
in
many
regions
and
districts
there
are
no
staff
in
place
to
take
such
assignments
forward.
Similarly,
many
Social
Affairs
Departments
in
the
District
Councils
have
1-4
staff
only,
yet
Law
23/2002
dictates
a
leading
role
in
service
delivery.
Decentralization
is
not
a
Panacea:
Decentralization
alone,
in
the
absence
of
core
central
government
capacities
to
deliver
effective
policy,
planning,
budgeting
and
regulatory
oversight
and
enforcement
can
lead
(as
it
has)
to
highly
fragmented
service
arrangements
and
a
poorly
regulated
private
sector.
In
Somaliland,
services
are
decentralized
by
default
and
not
design.
Given
the
weak
fiscal
framework,
strengthening
District
Sector
Structures
is
necessary.
Stronger
Central
Functions
are
Also
Required
to
Improve
Decentralized
Delivery:
In
the
context
of
fragmented
service
delivery
(there
are
for
example
at
least
five
different
curricula
in
the
education
system),
unless
central
provision
functions
(some
of
which
can
be
deconcentrated
to
the
regional
or
district
level)
are
strengthened
and
service
delivery
model
standards
established
and
enforced,
the
potential
benefits
of
decentralized
delivery
may
be
undermined
by
weak
oversight
and
monitoring.
With
Government
Fiscal
Resources
Improving,
Donor
Trust
Funds
Are
Vital
to
Build
Capacities
Now
that
can
soon
be
Financed
On-Budget:
The
Governments
recently
established
Medium
Term
Fiscal
Framework
(MTFF)
underscores
the
significant
progress
being
made
in
generating
revenues.
Donors
need
to
consolidate
support
to
the
sectors,
perhaps
discussing
the
use
of
sector
categorical
grants
or
improve
the
current
block
grants
(fiscal
transfer)
arrangement
to
the
districts,
as
well
as
piloting
new
sector
financing
models,
as
critical
to
improved
delivery.
The
Private
Sector
and
Diaspora
Are
Key
to
Progress:
The
private
sector
plays
a
critical
role
in
all
three
sectors,
and
in
many
cases
is
the
cornerstone
of
service
delivery.
In
all
cases,
the
leading
role
of
the
private
sector,
and
indeed
the
role
of
the
international
Diaspora,
can
be
better
leveraged.
A
Service
Delivery
not
Decentralization
Lens
must
Drive
Sector
Development:
The
assessment
team
has
not
been
guided
by
the
need
to
push
decentralization,
but
rather
to
use
a
service
delivery
lens
to
determine
which
is
the
optimal
balance
of
central-sub-national
functional
assignments
to
maximize
returns
to
service
delivery
quality
and
coverage,
taking
both
vertical
sector
Ministries
and
local
government
into
consideration.
District
and
Regional
Functional
Assignments
will
Remain
Largely
Provisional
in
Nature,
even
in
Grade
A
Districts,
unless
sub-national
transfers
are
increased:
Planning,
coordination,
regulatory
oversight
and
compliance,
nominal
capital
financing
and
support
for
maintenance
ix
Study
on
Functional
Assignments
SOMALILAND
Final
Report
costs
are
all
that
regional
and
district
sector
Ministries
and
Local
Governments
can
provide,
under
the
current
resource
framework.
LAW
23/2002
REQUIRES
URGENT
REVISION
The
constitution
defines
the
revenue
and
expenditure
responsibilities
of
Central
Government,
it
does
not,
however,
define
the
expenditure
responsibilities
of
the
Regions
and
District
authorities
claimed
by
government.
Further
the
Law
on
decentralization
(No.
23/2002
and
the
2007
amendment)
was
never
costed
or
sufficiently
financed
to
be
effective,
nor
were
subsidiary
regulations
put
in
place
to
clarify
sector
service
delivery
mandates
of
local
government.
In
the
same
vein,
policies
that
guarantee
universal
access
to
essential
and
basic
services
(primary
education,
health
care,
WASH)
come
at
a
cost,
and
unless
sufficient
resources
are
provided,
the
policies
will
fail.
In
a
weak
fiscal
environment
efforts
to
maximize
efficiencies
in
delivery
are,
therefore,
critical
to
success.
Furthermore,
unless
the
intra-
governmental
fiscal
transfer
system
(and
the
principles
that
guide
it)
are
further
developed,
with
subventions
made
to
better
even
out
fiscal
imbalances
and
to
improve
baseline
services,
the
implementation
of
Law
No.
23
will
continue
to
be
limited
by
lack
of
resources.
As
a
result,
the
Social
Affairs
Departments
to
be
established
remain
either
under-staffed
or
without
staff,
limiting
the
role
that
local
government
plays
in
sector
governance.
Local
government
Law
No.
23/2002
(including
the
2007
amendment)
has
only
been
partially
implemented
due
to
the
substantial
fiscal
disparities
between
Grades
A,
B,
C
and
D
districts
alongside
uncertainty
over
the
sectoral
assignments
of
the
sector
Ministries
and
local
government.
Grade
A
and
B
districts
have
a
staffing
establishment
from
50
to
300
staffwhich
is
financed
through
central
government
fiscal
transfers
and
local
government
own
local
revenue
mobilizationand
in
Berbera
District
(Grade
A)
this
has
led
to
the
establishment
of
a
small
health
department
which
coordinated
its
activities
with
the
District
Health
Officer.
In
Grade
C
and
D
Districts,
where
staffing
can
range
from
8-20
staff
members,
lack
of
fiscal
resources
makes
execution
of
the
functional
assignments
ascribed
under
Law
No.
23/2002
unaffordable
and,
therefore,
impossible.
As
a
result,
the
level
of
authority
exercised
by
local
governments
depends
substantially
on:
The
number
of
public
services
they
finance;
Whether
the
costs
of
these
services
are
in
line
with
their
revenue
base
(fiscal
transfers,
central
and
local
government
tax
and
revenue
sharing
and
non-tax
incomes);
and,
Whether
they
are
free
to
adopt
their
own
fiscal
and
expenditure
policies
to
maintain
an
acceptable
fiscal
balance
given
revenue
and
expenditure
trade-offs.
IMPLEMENTING
SECTOR
POLICY
&
STRATEGY
ENVIRONMENT
Despite
constraints,
the
overall
sector
policy
and
strategy
environment
are
improving.
In
Somaliland
there
is
a
draft
national
health
strategy
guiding
future
priorities
and
a
draft
Human
Resources
(HR)
policy
(for
human
resources
for
health).
Furthermore,
a
National
Education
Policy
has
been
in
place
since
2005
and
a
National
Education
Act
was
approved
in
2006.
There
is
also
a
Somaliland
Education
Sector
Strategic
Plan
for
the
period
2007-2011
and
an
Operational
Plan
for
2009.
The
National
Development
Plan
(2012-2016)
remains
the
most
recent
policy
document.
In
addition,
a
Free
Primary
Education
(FPE)
policy
was
introduced
in
January
2011.
Additional
documents
approved
include
a
Strategic
Plan
for
Primary
Education
for
Disadvantaged
Groups,
a
document
outlining
Strategic
Issues
in
Teacher
Management
and
Development
(approved
in
2008),
a
Funding
Plan
for
Expanded
Access
to
Primary
Education,
a
Secondary
Education
and
Technical
and
Vocational
Training
(TVET)
Strategic
Document
for
the
period
2008-2009,
a
Teacher
Education
Policy,
a
Teachers'
Code
of
Conduct,
and
an
Accelerated
Basic
Education
(ABE)
Curriculum,
Transfer
Policy
and
Implementation
Strategy.
In
addition,
x
Study
on
Functional
Assignments
SOMALILAND
Final
Report
a
Gender
Policy
has
been
drafted
and
a
Gender
Scholarship
Fund
is
in
place.
Implementing
these
and
other
policies
however
not
only
requires
clarity
with
regards
to
functional
mandates,
it
also
requires
that
financial
resources
and
staff
are
recruited
to
implement
sector
policies,
such
capacities
being
the
major
gap.
STRENGTHENING
SECTOR
AND
LOCAL
GOVERNMENT
FINANCING
ARRANGEMENTS
Fiscal
Futures
Are,
However,
Beginning
to
Balance
Public
and
Private
Delivery
Systems:
Since
Law
No.
23/2002
was
enacted,
government
sources
of
revenue
have
increased
from
less
than
US$10
million
to
more
than
US$50
million,
and
the
2011
MTFF
provided
by
the
Ministry
of
Finance
(MoF)
predicts
revenues
of
around
US$90
million
in
2013.
With
the
revenue
to
GDP
ratio
growing
from
less
than
3%
in
2002
to
more
than
10%
in
2013
(and
with
a
larger
economy),
the
Government
will
be
able
to
discharge
more
effectively
part
of
its
sector
production
functions,
whilst
also
strengthening
provision
functions.
Somalilands
service
delivery
framework
has
therefore
been
shaped
by
the
following
factors:
The
provision
of
direct
budget
support
(external
assistance
provided
through
the
government
treasury
system)
is
undermined
by
a
number
of
factors
including
perceived
low
fiduciary
standards,
the
current
limited
engagement
of
the
World
Bank
and
IMF,
which
is
often
critical
to
creating
the
fiscal
space
to
strengthen
sector
governance;
The
two
decade
long
humanitarian
crisis
has
meant
that
humanitarian
budget
lines
have
been
tapped
by
donors,
with
limited
direct
support
for
establishment
of
state
provision
and
production
capacities
and
resulting
in
strong
private
sector
and
non-governmental
support,
as
well
as
community
mobilization
has
so
far
been
the
backbone
of
service
delivery;
and,
Weak
state
coordination
capacities
and
the
need
for
delivery
has
meant
that
much
support
has
circumvented
government
coordination
systems.
What
can
be
done
to
Resolve
Sector
and
Local
Government
Fiscal
Constraints?
Strengthening
the
decentralization
of
decision-making
authority
to
autonomous
local
government,
requires
greater
clarity
with
regard
to
the
different
functional
assignments
of
local
government
and
the
sub-national
assignments
of
the
core
sectorseducation,
health
and
WASH.
The
following
measures
will,
therefore,
need
to
be
considered
if
local
government
is
to
play
a
key
role
in
shaping
economic
growth
and
poverty
reduction
futures:
Improve
Revenue
Mobilization:
A
surge
in
local
government
revenue
mobilization
is
required,
which
means
improving
tax
and
non-tax
collections,
recording,
depositing
and
permissible
expenditures
and
broadening
the
revenue
base,
yet
without
creating
serious
market
distortions
that
could
impede
growth;
Improving
Harmonization
and
Alignment:
Harmonizing
and
aligning
external
assistance
(which
can
support
intra-governmental
fiscal
transfers)
to
support
local
government
financing
of
basic
and
essential
services
until
tax
reforms,
improved
intra-governmental
fiscal
transfers
and
other
measures
such
as
community
financing
can
meet
expenditure
needs;
Strengthen
Sector
Financing
Arrangements
to
Limit
Parallel
Delivery
Systems:
The
composition
of
public
spending
needs
to
be
carefully
reviewed
(for
horizontal
and
vertical
functions
as
well
as
gaps)
with
a
view
to
making
expenditure
plans
realistic.
It
is,
therefore,
important
not
to
promote
un-necessary
or
parallel
structures
but
rather
to
group
common
functions
and
services
to
maximize
the
rate
of
return
on
government
spending;
and,
Improving
the
Current
Local
Government
Grant
Formula
and
Consider
Sector
Categorical
Grants:
A
more
conventional
and
transparent
intra-governmental
fiscal
transfer
system
needs
to
be
developed
(to
remove
vertical
and
horizontal
imbalances),
so
that
Grade
D,
C
and
B
districts
are
able
to
exercise
powers
as
provided
under
the
constitution
and
various
laws.
Clearly,
as
MoF
xi
Study
on
Functional
Assignments
SOMALILAND
Final
Report
also
now
proposes,
the
fiscal
transfer
allocation
formula
needs
to
be
strengthened,
based
on
population
size,
basic
social
indicators,
level
of
human
development,
revenue
effort
and
poverty
index.
But
even
if
Fiscal
Constraints
are
Resolved
Public
Sector
Staffing
(Establishment)
Numbers
and
Capacity
Need
Urgent
Attention:
Governments
seek
to
attract,
motivate
and
retain
quality
employees
to
deliver
the
five
core
functions
of
government:
policy
formulation,
planning,
budgeting,
execution
and
regulatory
oversight
and
enforcement.
The
central
government
currently
employs,
according
to
the
annual
budget
of
2011,
some
9,843
civil
servants
and
some
10,365
military
personnel,
and
with
other
employees
public
sector
staffing
totals
26,795
in
2011.
Some
37%
of
these
are
in
education
and
some
18%
in
health.
Of
the
four
staffing
grades
(A
(most
senior),
B,
C,
and
D)
about
60%
do
not
have
a
secondary
education,
a
further
35%
either
have
a
secondary
education,
and
about
5%
are
graduates.
Women
make
up
27%
of
the
civil
service.
Some
66%
of
staff
are
frontline
service
providers
and
work
in
the
regions
and
regional
offices
of
the
central
government.
However,
given
fiscal
constraints
pay
and
grading
structures
are
inadequate
to
attract
and
retain
trained
staff,
thus
the
President
is
proposing
a
pay
and
grading
restructuring
in
this
respect.
Civil
Service
Reform
is
therefore
critical
to
build
a
cadre
of
motivated
professionals
to
better
to
deliver
services.
SUCCESSES
ARE
SHAPING
THE
PACE
AND
DEPTH
OF
SERVICE
DELIVERY
Despite
significant
constraints
good
stories
are
beginning
to
emerge
in
Somaliland
that
provide
optimism
for
progressive
modernization
and
improved
service
delivery,
much
of
which
demands
stronger
decentralization.
These
include,
but
are
not
limited
to:
Significant
improvements
in
the
macro-fiscal
domain
which
will
lead
to
major
increases
in
education,
health
and
WASH
financing
and
potentially
a
strong
arrangement
for
fiscal
transfers
to
local
government.
A
budget
of
US$70-90
million
is
possible
in
2012;
A
National
Development
Strategy
(2012-2016)
provides
a
framework
for
focusing
on
sector
and
cross-sector
investments,
and
although
greater
activity
prioritization
is
required,
linking
the
National
Development
Strategy
(NDS)
with
the
MTFF
is
an
important
development;
A
Medium
Term
Fiscal
Framework
has
been
established
which
provides
the
foundation
for
setting
sector
budget
ceilings,
as
the
basis
for
developing
bottom-up
costed
expenditure
programs;
Pay
and
Grading
Reform
is
likely
to
be
considered
with
positive
implications
for
attracting
and
retaining
core
national
staff,
thereby
strengthening
provision
functions;
Functional
Restructuring
of
Education
and
Health
Ministries,
as
well
as
draft
sector
policies
have
been
established,
and
public
health
and
education
services
are
beginning
to
increase;
The
Essential
Package
of
Health
Services
(EPHS)
is
being
piloted
and
can
be
rolled
out
as
the
cornerstone
of
the
new
health
policy
around
which
primary,
secondary
and
tertiary
care
systems
can
be
strengthened;
MoF
advisors
are
looking
to
open
up
the
discussion
on
intra-governmental
fiscal
transfers
and
their
equity,
which
could
progressively
remove
resourcing
constraints
for
lower
grade
districts;
Donor
trust
fund
mechanisms
are
being
explored
to
de-projectize
external
support,
perhaps
creating
fungible
resources
to
strengthen
core
sector
production
and
provision
functions;
and,
Support
to
the
Macro-Fiscal
Unit
in
MoF,
for
strengthening
Public
Private
Partnerships
(PPPs)
(including
World
Bank
Support
in
this
area)
with
implications
for
WASH,
and
for
strengthening
xii
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on
Functional
Assignments
SOMALILAND
Final
Report
municipal
finances
are
important,
as
are
donor
support
(EC
and
DFID)
for
strengthening
provision
functions
of
core
service
Ministries.
GENERAL
FINDINGS
FOR
THE
DECENTRALIZATION
PROCESS
The
following
general
conclusions
were
reached
in
relation
to
the
current
decentralization
process,
all
of
which
impact
both
horizontal
local
government
and
vertical
sector
governance.
These
general
conclusions
were
validated
by
the
Government
of
Somaliland,
and
will
frame
much
of
the
forward
discussion:
As
outlined
above,
Law
23/2002
needs
to
be
revised
to
clarify
the
formal
functional
assignments
of
local
district
councils
in
relation
to
health,
education
and
WASH
service
provision,
but
such
clarification
must
take
into
consideration
the
fiscal
imbalances
across
districts
Graded
A
to
D.
A
national
consultation
process
would
be
required
to
make
sure
that
changes
reflect
the
preferred
balance
of
power
in
relation
to
political,
fiscal
and
administrative
decentralization;
There
is
no
clear
champion
of
decentralization
above
the
level
of
sector
Ministries,
to
envision,
guide
and
channel
efforts
to
improve
policy
coordination
around
improved
decentralized
delivery;
There
is
no
decentralization
Policy
Framework
and
this
needs
to
be
established
to
guide,
shape
and
sequence
improved
local
governance,
reflective
of
different
district
capacities.
There
are
suitable
models
from
Uganda
and
Kenya
which
may
be
useful
to
review,
in
particular
around
functional
assignments
and
consolidated
local
government
budgeting;
Education,
health
and
WASH
sector
laws,
acts,
policies
and
strategies
need
to
be
explicit
about
the
formal
relationship
between
the
vertical
sector
and
Local
Governments
(LGs),
including
a
clear
description
of
functional
assignments
at
the
interface
between
horizontal
and
vertical
structures;
The
current
fiscal
transfer
mechanisms
need
to
be
reviewed
to
remove
horizontal
fiscal
imbalances
and
through
discussion
between
central
government
(MoI,
MoF,
Sector
Ministries)
and
LGs,
agree
sector
financing
rules
in
support
of
agreed
functional
assignments;
Given
improvements
in
the
Medium
Term
Fiscal
outlook,
including
significant
increases
to
local
government
finances,
the
role
of
the
centre
and
LGs
are
changing
year-on-year,
in
terms
of
their
ability
to
move
beyond
recurrent
costs
payments,
with
the
state
increasingly
able
to
deliver
real
services
to
citizens;
Core
Service
Delivery
Models
(SDMs)
for
the
education,
health
and
WASH
sectors
need
to
be
clearly
defined
to
allow
government
and
external
support
to
be
effective
in
fostering
improved
sector
delivery.
This
will
also
require
the
development
of
models
to
address
social
exclusion,
particularly
for
pastoral
communities,
and
also
piloting
approaches
such
as
School
Based
Management
(SBM)
that
positions
schools
as
the
primary
service
delivery
unit,
not
the
district
per
se;
xiii
Study
on
Functional
Assignments
SOMALILAND
Final
Report
The
process
of
decentralized
service
delivery
demands
a
clear
focus
at
central,
regional
and
district
levels,
not
just
at
the
level
of
local
government.
As
a
result,
future
investments
must
balance
support
for
vertical
sector
Ministries
and
horizontal
local
governments;
and,
The
numbers
of
regions
and
districts
still
has
to
be
formally
endorsed
by
parliament,
undermining
a
clear
model
for
decentralization
and
focus
for
decentralized
local
governance
within
the
unitary
structure
of
Somaliland.
PRIORITIES
FOR
THE
EDUCATION
SECTOR
For
Education,
where
private
sector
and
donor
financing
(channeled
substantially
through
Non-
Governmental
Organizations
(NGOs)),
as
well
as
support
from
Village
Councils
and
committees
continues
to
dominate
the
sector,
the
focus
of
support
must
be
on
(I)
strengthening
provision
functions
at
central,
regional
and
district
levels,
both
within
the
sector
and
in
local
government,
(ii)
strengthening
oversight
of
production
functions
(public,
private,
Quranic
and
NGO-run
schools),
and,
(iii)
moving
(as
fiscal
resources
allow)
towards
strengthening
free
provision
of
primary
education
through
small
block
grants
to
the
schools
(via
the
Ministry
of
Education
and
Higher
Studies
(MoEHS))
and
progressively
piloting
provision
into
nomadic
communities.
Ongoing
functional
restructuring
and
re-setting
of
functional
assignments
will
improve
the
delineation
of
decision-making
across
vertical
and
horizontal
delivery
structures.
There
are
numerous
sector
priorities
that
will
need
to
be
undertaken
within
the
coming
years,
critical
to
strengthening
the
education
sector
and
clarifying
vertical
and
horizontal
functional
assignments.
The
following
priority
activities
reflect
the
results
of
the
validation
workshops:
The
overall
policy
and
strategy
framework
is
well
developed,
and
guidelines
exist
in
support
of
school
management,
although
the
adoption
of
a
formal
approach
to
School
Based
Management
would
allow
a
cohesive
framework
for
service
delivery
to
emerge
around
which
pilot
clusters
could
be
supported
to
build
a
common
approach
across
what
remains
a
rather
fragmented
system;
Following
the
announcement
by
the
MoE
to
provide
free
primary
education
for
all,
which
reflects
improved
sector
resourcing,
there
still
remains
uncertainty
regarding
how
to
manage
the
interface
between
the
sector,
LGs
and
community
financing
and
a
consolidated
budgeting
approach
appears
justified.
General
functional
assignments
are
proposed
for
Regional
Education
Officers
(REOs),
District
Education
Officers
(DEOs)
and
Local
Governments,
to
form
the
basis
for
national
consultation;
The
need
for
Regional
Education
Offices
(REOs),
District
Education
Offices
(DEOs)
and
District
Councils
(DCs)
to
hold
consultative
discussions,
and
also
for
assignments
to
be
made
explicit
in
the
education
law
and
a
revised
Law
23/2002
is
clear.
Moreover,
given
current
resource
limitations,
it
would
be
useful
to
discuss
the
possible
co-location
of
DEO
and
district
administration
support
to
the
sector,
to
be
placed
within
the
Social
Affairs
Department
perhaps
as
a
common
services
department;
While
sector
costing
is
urgently
required,
such
an
approach
must
be
mapped
to
the
national
budget
formulation
process,
and
ideally
the
ongoing
costing
exercise
would
be
undertaken
as
a
top-down
medium
term
fiscal
framework
and
bottom-up
sector
expenditure
framework,
covering
wage,
non-wage,
operations
and
maintenance
and
capital
investment
costs;
xiv
Study
on
Functional
Assignments
SOMALILAND
Final
Report
There
is
a
need
to
urgently
identify
the
different
Service
Delivery
Models
(SDM)
for
primary
and
secondary
education,
covering
urban,
rural
settings
and
pastoral
settings.
For
School
Based
Management
(SBM),
by
way
of
an
example,
such
an
approach
brings
existing
legislation,
regulations
and
management
practices
into
a
national
standard
and
guideline,
around
which
schools
emerge
as
the
primary
unit
of
delivery.
Such
an
approach
needs
to
be
developed,
piloted
through
clusters
and
then
scaled
up
to
maximize
cohesion
around
a
common
set
of
educational
standards;
The
financial
contributions
of
local
governments
need
to
be
formalized
as
a
budget
percentage
rule
(perhaps
around
5%),
around
which
functional
assignments
would
be
developed
reflective
of
the
resources
available
for
different
districts;
and,
There
is
a
need
to
remove
the
horizontal
fiscal
imbalances
whilst
perhaps
considering
options
for
sector
categorical
grants
to
the
DCs.
Further
work
would
be
required
to
develop
such
a
pilot
and
this
should
be
done
in
support
of
consolidated
local
government
budgeting.
PRIORITIES
FOR
THE
HEALTH
SECTOR
For
Health,
which
is
dominated
by
a
largely
unregulated
private
provision,
but
where
the
Government
and
WHO/UNICEF
supported
Essential
Package
of
Health
Services
is
emerging
as
the
cornerstone
of
public
health
provision,
the
focus
of
support
must
simply
be
on
financing
the
EPHS
and
improving
regulatory
capacities.
This
implies
a
strong
focus
on
removing
the
financing
constraints
to
expansion
and
eventually
turning
the
essential
package
into
a
more
comprehensive
basic
package
over
time.
The
roles
of
local
governments
and
village
communities
would,
therefore,
focus
on
mobilizing
finances,
preventive
health
measures
and
education
and
training.
The
draft
Health
policy
is
clear
in
its
commitment
to
decentralized
delivery
given
the
focus
on
primary
care
in
the
first
instance.
Ongoing
functional
restructuring
of
the
Ministry
of
Health
(MoH)
will
have
implications
for
service
delivery
mandates,
and
the
roles
of
local
government
and
sub-national
sector
entities
in
delivery.
In
the
validation
workshop
H.E
the
Minister
of
Health
agreed
that
the
2011
National
Health
Policy
needs
to
be
clear
on
the
role
of
Local
Government
from
a
functional
assignment
point
of
view,
and
that
local
governments
should
adopt
a
percentage
rule
for
support
the
health
sector.
A
collaborative
discussion
therefore
needs
to
take
place
between
the
Ministry
of
Health
(MoH),
Ministry
of
Interior
(MoI)
and
Local
Governments
to
agree
functional
assignments
and
how
best
to
consolidate
central
and
local
government
finances.
A
set
of
guide
functional
assignments
are
outlined
here
to
assist
government
in
such
deliberation;
In
relation
to
health
service
provision,
Law
23/2002
needs
to
be
revised
to
remove
ambiguities
in
relation
to
health
functional
assignments,
with
clear
functions
being
allocated
between
the
sector
and
LG
based
on
a
cost-sharing
arrangement;
to
be
formalized
in
due
course.
Grade
A
districts
have
built
up
Social
Service
Directorates
and
Berbera
has
established
a
small
health
department,
and
increases
in
local
government
revenues
in
recent
years
now
requires
for
the
formalization
of
health
care
financing
between
the
two
entities;
Local
Government
appear
committed
to
determining
the
cost
basis
for
LG
support
to
the
sector,
with
a
number
of
heads
of
LG
hinting
at
a
5-6%
budget
rule
for
the
sector.
Such
a
move
could
be
supported
by
reciprocity
from
Central
Government
and
pooled
financing
approaches
developed,
to
include
financial
flows
from
the
District
Development
Fund;
xv
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on
Functional
Assignments
SOMALILAND
Final
Report
It
seems
logical
to
move
progressively
towards
a
functional
(policy
and
program
based)
health
budget
around
which
donors
can
provide
and
coordinate
support;
Rolling
out
of
the
Essential
Package
of
Health
Services
(EPHS),
the
district
model,
is
perhaps
the
main
priority
for
the
sector,
and
target
districts
(including
in
Sahil
and
Togdheer
regions)
for
Phase
I
roll
out
would
need
to
be
agreed,
alongside
drives
to
improve
regulatory
oversight
of
the
private
sector,
which
remains
the
backbone
of
the
current
service
delivery
arrangement;
Successful
piloting
will
require
that
selected
districts
have
the
minimum
capacities
(fiscal
and
human
resourcing)
to
sustain
their
involvement
in
delivery,
implying
an
initial
focus
on
Grade
A
districts,
where
fiscal
resources
support
such
an
outcome.
However,
given
the
need
to
extend
service
delivery
out
into
Grade
B,
C
and
D
districts,
pilots
will
need
to
be
carefully
developed
reflective
of
the
lower
capacities
at
the
this
level
of
LG.
Ideally,
fiscal
imbalances
will
be
progressively
removed
and
consolidated
LG
budgeting
developed,
to
widen
the
resource
base,
including
linkages
with
the
district
development
fund;
and,
It
seems
logical
to
consider
piloting
sector
categorical
grants
for
health
care
provision.
The
aim
would
be
to
review
the
main
funding
channels
(central
government,
local
government,
donor
trusts
funds,
the
District
Development
Fund)
and
to
see
how
targeted
health
sector
grants
from
donor
trusts
funds
can
be
used
to
support
strengthening
of
district
level
provision.
PRIORITIES
FOR
THE
WASH
SECTOR
For
WASH,
where
public
sector
delivery
of
water,
sanitation
and
hygiene
is
virtually
non-existent
and
the
current
model
of
delivery
might
best
be
described
as
a
poorly
regulated
public-private
partnership,
the
role
of
local
governments
in
direct
service
delivery
regulation,
especially
price
regulation,
and
oversight
of
Water
and
Sanitation
(WATSAN)
and
Hygiene
services
is
going
to
be
critical.
The
current
service
model,
particularly
for
water
supply
services,
excludes
many
groups,
is
largely
urban
focused,
is
poorly
regulated
(pricing/quality)
and
does
not
provide
the
incentive
framework
necessary
for
the
private
sector
to
expand
the
service
footprint
ever
outwards.
The
extension
of
water
supply
(and
later,
wastewater)
networked
service
coverage
at
the
current
prices
is
prohibitive
to
the
majority
of
the
population,
unless
a
fairer
balance
between
price
and
service
is
established.
A
public
sector
operator
at
the
local
government
level
is
best
placed
to
address
this
urgent
issue
appropriately.
In
addition,
given
that
WATSAN
is
generally
a
highly
devolved
sector,
a
focus
on
bottom-up
and
top-down
accountability,
financing,
pricing
and
regulatory
strengthening
and
enforcement
are
going
to
be
key
to
improve
the
level
of
service
delivery
and
sector
performance
by
developing
a
local
government
enterprise
model
that
addresses
these
constraints.
For
hygiene,
an
integrated
approach
is
required.
The
validation
workshop
made
clear
that
there
is
an
urgent
need
for
the
Ministry
of
Mines,
Energy
&
Water
Resources
(MMEWR)
and
Ministry
of
Interior
(MoI)
to
agree
how
local
governments
can
best
engage
with
the
sector,
in
a
formal
way.
In
relation
to
hygiene,
there
is
similarly
a
need
to
strengthen
the
promotion
of
hygiene
management
practices
as
a
major
investment
in
preventive
care.
This
important
political
discussion
needs
to
be
shaped
around
agreeing
shared
service
delivery
models,
the
importance
of
separating
regulatory
oversight
and
implementation
functions
and
the
need
to
strengthen
existing
Public
Private
Partnerships
(PPPs)
through
various
measures.
Such
a
discussion
will
also
need
to
reflect
that
many
Grade
A
districts
provide
increasing
levels
of
support
to
the
sector,
that
consolidated
local
government
budgeting
could
be
deployed
to
increase
clarity
in
relation
to
expenditure
assignments
and
that
PPP
contract
law
needs
strengthening
in
particular
in
relation
to
lease
xvi
Study
on
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Assignments
SOMALILAND
Final
Report
and/or
concession
provision
and
management
of
assets.
The
following
issues
were
discussed
in
the
validation
workshop
and
are
therefore
proposed
as
next
steps:
The
central
Ministry
is
substantially
under-financed,
with
negative
impacts
on
WASH
provision.
Increasing
the
sector
allocation
through
the
budget
process
would
focus
on
building
the
core
policy,
strategy
and
regulatory
oversight
capacities
of
the
Ministry,
including
its
ability
to
engage
in
contract
management;
It
is
important
to
identify
the
preferred
Service
Delivery
Models
for
Water
Supply
Public
Private
Partnerships
(PPPs),
differentiating
between
urban
and
rural
areas,
while
also
agreeing
these
models
within
government
and
key
donors
financing
the
sector,
so
that
both
on
and
off-budget
funding
are
coordinated
around
the
same
generic
SDM
approach.
This
would
bring
new
standards
of
sector
governance,
accountability
and
transparency.
A
number
of
models
are
proposed;
There
is
a
need
to
actively
consider
the
separation
of
regulatory
oversight
and
service
delivery
functions,
in
the
interests
of
sector
accountability,
both
in
relation
to
general
service
provision
and
PPP
arrangements;
The
existing
contract
arrangements
for
PPPs
need
to
be
clear
on
whether
lease
or
concession
arrangements
are
being
proposed,
as
well
as
responsibilities
for
asset
ownership
and
management,
given
the
need
to
strengthen
network
management
and
expansion.
Moreover,
it
is
important
to
undertaking
cross-project
comparators
to
set
pricing
and
determine
economic
viability,
and
to
be
clear
on
the
role
of
central
authorities
and
Local
Government,
around
the
preferred
service
delivery
models;
If
future
WASH
related
investments
should
be
underpinned
by
Social
Cost
Benefit
Analysis,
not
just
calculation
of
financial
rates
of
return,
and
as
a
result
different
service
delivery
models
can
be
entertained.
This
approach
is
important
because
water
is
not
just
an
economic
good
but
also
a
public
good
and
essential
service.
Equally,
undertaking
ability-to-pay
surveys
around
both
urban
and
rural
delivery
models
will
provide
a
foundation
where
the
recovery
of
operational
costs
at
least
can
be
achieved;
There
is
no
reason
why
PPP
engagement
models
can
not
be
piloted
for
Solid
Waste
Management
(SWM).
These
are
likely
to
be
profitable
in
Grade
A
Districts,
which
would
remove
a
major
source
of
ill
health
from
local
jurisdictions;
In
developing
pilots,
it
is
vitally
important,
particularly
in
urban
delivery
where
LGs
should
play
a
significant
role,
that
pilots
are
calibrated
to
reflect
the
different
fiscal
and
human
resource
capabilities
of
different
districts.
While
there
is
justification
for
an
initial
focus
on
Grade
A
and
perhaps
B
districts,
pilots
and
SDMs
will
also
need
to
be
developed
for
more
rural
and
isolated
districts
classified
as
Grades
C
and
D;
and,
The
Government
needs
to
improve
aid
management
for
the
sector,
thereby
leverage
external
funding
for
new
projects
and
building
better
delivery
standards,
maximizing
the
impact
of
investments
on
long
term
service
extension.
xvii
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on
Functional
Assignments
SOMALILAND
Final
Report
-1-
Introduction, Scope, Approach
& Economic Context
1
Study
on
Functional
Assignments
SOMALILAND
Final
Report
1.
INTRODUCTION,
SCOPE,
APPROACH
AND
ECONOMIC
CONTEXT
1.1
INTRODUCTION
1. This
report
presents
the
assessment
findings
of
the
Study
on
Sector
Functional
Assignments
within
the
Education,
WASH
and
Health
Sectors
in
Somaliland.
The
assessment
has
been
financed
by
the
UN
Joint
Program
on
Local
Governance
and
Decentralized
Services
Delivery
(JPLG)
and
implemented
by
UNICEF
as
part
of
its
role
in
the
JPLG.
The
assessment
aims
to
provide
a
critical
input
into
rethinking
(unbundling)
the
education,
health
and
water
and
sanitation
sectors,
in
support
of
the
newly
established
Somaliland
National
Development
Plan
(NDP).
As
outlined
in
the
NDP
decentralization
and
public
participation
are
crucial
to
mobilizing
the
regions
and
civil
societies
(NDP,
Pg.
24),
and
local
government
and
decentralization
are
therefore
deemed
critical
to
meeting
public
sector
action
areas
that
will
reduce
poverty.
Further,
the
Guideline
for
the
Sector
Technical
Working
Groups
in
Decentralization
and
Local
Government,
state
that
the
main
objective
to
strengthen
decentralized
delivery
is
to
promote:
(i)
the
institutions
of
a
strong,
legitimate
and
stable
state;
(ii)
opportunities
for
local
democratic
participation
by
all
citizens;
and,
(iii)
more
effective,
efficient
and
equitable
public
service
delivery
for
the
social
and
economic
development
of
the
country.
2. This
assessment
comes
at
a
time
when
the
NDP
has
just
been
released
and
JPLG
is
taking
stock
of
decentralized
delivery
options,
in
support
of
improved
service
delivery.
It
also
comes
almost
a
decade
after
the
passing
of
Law
No.
23
on
Regions
and
District
Self
Administration;
a
law
that
was
revised
in
2007.
The
mandates
of
vertical
sector
Ministries
and
local
government
(districts)
in
service
delivery
was
never
made
fully
explicit,
and
as
such,
despite
gains,
there
is
considerable
space
to
identify
improved
service
delivery
models
and
to
recast
functional
assignments
around
such
an
approach.
Furthermore,
given
that
very
explicit
focus
on
decentralized
delivery
in
the
NDP
and
various
pieces
of
legislation,
the
timing
of
this
work
is
hugely
relevant
to
ongoing
policy
discussions
within
government
and
the
international
community.
In
addition
to
Law
23,
the
NDP
is
clear
in
its
intent
to
foster
more
meaningful
decentralization
of
core
services,
and
to
overcome
the
constraints
encountered
by
JPLG:
The
NDP
places
local
government
and
decentralization
as
one
of
the
main
poverty
reduction
actors
(ibid
Pg.
24);
Government
is
committed
to
implementing
a
coherent
approach
to
decentralizing
the
delivery
of
public
services
by
bringing
public
institutions
closer
to
the
people
and
encouraging
their
participation
in
the
decision
making
process.
(ibid
Pg.
29);
A
cogently
delineated
system
is
required
in
which
ministries,
departments,
and
Government
agencies
can
collaborate
with
regional
and
district
municipalities
has
yet
to
be
devised
(ibid
Pg.
194);
Promoting
decentralization,
transparency,
accountability
and
inclusivity
in
the
management
of
public
affairs
(Ibid
Pg.
196)
is
critical;
and,
In
the
context
of
JPLG,
deciding
on
which
service
delivery
model
to
choose
before
functional
assignments
are
set
is
a
pre-condition
for
orderly
unbundling.
1.2
SCOPE
&
RATIONALE
3. The
scope
of
work
is
largely
shaped
by
the
Sector
Guidelines
developed
by
the
JPLGwhich
provide
the
main
tool
of
analysisaround
which
the
orderly
unbundling
of
the
sectors
can
be
forwarded
based
on
hard
field-based
evidence.
It
also
takes
into
consideration
the
newly
launched
NDP.
The
rationale
for
the
work
reflects
a
decade
of
support
for
decentralized
delivery,
with
marginal
returns
to
improved
local
governance
due
to
structural
constraints,
and
a
strong
commitment
of
government
2
Study
on
Functional
Assignments
SOMALILAND
Final
Report
supported
by
JPLG
to
create
clarity
over
roles
and
mandates
of
sector
Ministries
and
Local
Government,
around
the
preferred
service
delivery
model.
5. In
conducting
the
sector
unbundling
exercise
in
support
of
meeting
NDP
and
decentralized
service
delivery
objectives,
it
is
necessary
to
frame
the
exercise
within
the
institutional
and
fiscal
realty
of
each
sector.
Furthermore,
it
is
necessary
to
consider
whether
sub-functions
are
as
they
occur
in
reality
in
Somaliland
or
whether
they
would
ideally
occur
as
in
standard
international
practice;
unless
they
are
the
same.
In
this
regard,
general
concerns
with
regards
decentralizing
core
delivery
functions
include:
Agreement
on
the
service
delivery
model
to
be
promoted
for
each
sector;
The
need
to
set
functional
assignments
within
fiscal
limits;
That
production
functions
are
more
often
than
not
financed
off-budget;
That
provision
functions
often
require
strengthening
at
the
center
not
just
the
periphery;
and
That
serious
fiscal
and
human
resource
constraints
undermine
third-tier
delivery.
3
Study
on
Functional
Assignments
SOMALILAND
Final
Report
1.4
GENERAL
ECONOMIC
FRAMEWORK
6. The
Government
of
Somaliland
has
undoubtedly
made
significant
gains
in
recent
years
on
the
economic
front,
as
evidenced
by
the
2012-2016
National
Development
Plan,
which
lays
out
clear
priorities
for
the
deepening
economic
transition,
and
the
creation
of
an
enabling
environment
for
private
business.
Understanding
the
overall
macro-fiscal
framework
is
of
critical
importance
to
this
assessment,
given
the
need
to
promote
viable
sector
models
that
can
drive
service
delivery,
within
a
medium
fiscal
framework
to
guarantee
sustainability.
As
the
size
of
the
national
budget
has
increased
significantly
between
2005
and
2011,
this
provides
a
degree
of
comfort
that
proposed
pilots
to
strengthen
sector
decentralization
could
eventually
be
supported
through
government
recurrent
financing.
Moreover,
with
the
government
launching
a
public
finance
management
reform
program,
supported
by
donors
who
according
to
the
MoF
have
increased
external
assistance
to
Somaliland
in
recent
years,
and
with
a
major
drive
expected
in
revenue
mobilization,
according
to
the
MoF
Fiscal
Framework
government
aims
to
increase
the
state
budget
from
US$50
million
to
US$90
million
over
the
short
term.
In
2003
the
state
budget
was
US$16
million.
(MoF,
2011,
MTFF)
7. There
are
no
reliable
figures
for
GDP
growth
(nominal
or
real),
the
structure
of
the
economy,
and
no
reliable
time
series
data
on
revenues,
inflation
or
remittances,
which
are
assumed
to
be
around
US$400
million
a
year.2
GDP
for
Somalia
is
assumed
to
be
between
US$1.6
billion
(Word
Bank,
2002)
and
US$5.896
billion
(CIA
Factbook).
According
to
the
World
Bank
report
(2002),
Somalilands
income
per
capita
is
higher
than
that
of
Somalia
due
to
peace
and
political
stability
achieved
which
has
enabled
high
rates
of
growth.
The
NDP
states
that
assuming
an
average
nominal
per
capita
income
US$300,
and
US$600
at
Purchasing
Parity
Price
(PPP),
and
a
population
of
3.5
million,
Somalilands
GDP
would
be
about
US$1.05
billion
in
nominal
prices
and
US$2.10
billion
in
PPP
terms.
The
structure
of
the
economy
remains
unknown,
but
is
assumed
that
agriculture
(including
livestock)
makes
up
65%,
services
a
further
25%
and
industry
10%
of
the
GDP.
Remittances
are
critical
to
paying
for
imports
and
doubtless
for
private
sector
contributions
to
education,
health
and
water
and
sanitation.
Table
1:
Somaliland
Employment
Statistics
(%)
(2002)
4
Study
on
Functional
Assignments
SOMALILAND
Final
Report
1.5
SOMALILAND
REVENUE
TRENDS
8. MoF
has
recently
established
a
MTFF
around
which
a
top-down
fiscal
envelope
has
been
translated
into
setting
sectoral
budget
ceilings.
To
achieve
such
a
rapid
expansion
in
revenues,
Government
does
not
intend
to
increase
the
tax
rate
but
rather
to
focus
on
broadening
the
tax
net
and
focusing
on
efficiency
and
anti-corruption
measures.
Given
that
local
governments
generate
their
own
revenues,
the
revenue
growth
will
have
significant
implications
for
local
governments
capacity
to
support
expenditure
programs
in
education,
health
and
water
and
sanitation.
Assigning
clear
service
delivery
functions
to
District
Councils
will
assist
in
removing
horizontal
imbalances.
Table
2
below
shows
the
revenue
trend
for
Central
Government
from
2005
to
2009,
showing
significant
year-on-year
progress.
Domestic
revenues
have
grown
significantly
over
the
years.
In
2006,
they
were
about
SL.
Sh.
68
billion
(US$11.8
million),
by
2008
they
reached
Sl.
Sh
262
billion
(US$45.6
million)
(See
Table
2).
Customs
duties
accounting
for
nearly
50%
of
total
revenue
constitute
the
largest
source
of
income
for
the
Somaliland
government.
These
are
followed
by
sales
taxes,
which
contribute
up
to
16%
of
total
revenues
in
2011.
Unlike
most
of
the
other
countries,
income
and
corporation
taxes
account
for
less
than
10%
of
the
governments
income.
Somaliland
currently
has
an
old
fashioned
tax
system
based
on
turnover
and
numerous
presumptive
(fixed)
taxes
on
smaller
traders.
Over
93%
of
total
tax
revenues
are
collected
by
the
Central
Government,
with
districts
so
far
accounting
for
the
remaining
7%.3
Table
2:
Government
Revenues
(2005-2009)
4
5
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Table
3:
Functional
Classification
of
State
Expenditure
(2011)
Description
%
Staff
expenses
(salaries
&
bonuses)
56.71
Operational
cost
(admin
expenses)
19.53
Equipment
17.21
Maintenance
3.68
Fixed
assets
(including
new
buildings)
1.99
General
support
0.89
Total
100
10. Table
4
below
provides
actual
government
expenditures
over
the
same
period
(2005-2009)
as
Table
2,
which
provides
government
revenues
(showing
around
about
a
10%
increase
year-on-year).
So
far
government
has
taken
a
prudent
approach
to
fiscal
management
with
actual
expenditures
generally
lower
than
revenues;
with
2008
being
the
notable
example,
with
government
running
a
fiscal
deficit
of
US$2.5
million
as
shown
in
Table
4.
Table
4:
Actual
Budget
Surplus/
Deficit
(2005-2009)
6
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Achieving
macroeconomic
stability
through
sound
fiscal
and
monetary
policies
built
on
public
finance
discipline
and
timely
monetary
policy
decision-making;
Reforming
tax
collection
and
administration
and
balancing
government
finances;
Broadening
and
deepening
the
tax
base
to
increase
revenue.
Government
should
account
for
at
least
10%
of
GDP
to
meet
its
social
service
obligations
and
finance
the
NDP;
Rendering
public
expenditure
more
transparent
and
reflective
of
government
priorities;
and,
Achieving
a
growth
rate
that
is
sufficient
to
support
the
objectives
outlined
in
NDP,
identify
the
sectors
that
will
drive
the
growth
process;
and
the
implementation
of
appropriate
public
policy
measures
that
are
necessary
to
ensure
this
drive.
13. Overcoming
structural
fiscal
constraints
(as
stated
within
the
2012-2016
NDP)
will
require
a
complex
set
of
measures
to
be
adopted;
certainly
if
the
capital
investment
targets
presented
in
the
NDP
(see
Table
6
above)
are
to
be
financed.
Amongst
these
constraintsand
with
relevance
to
decentralizationthe
government
seeks
to
address
the
following
core
crosscutting
issues
that
constrain
education,
health
and
WASH
spending:
Inability
to
mobilize
more
domestic
revenues;
Limited
external
assistance
to
finance
development
and
recurrent
budgets;
Lack
of
a
development
budget,
weak
tax
administration
and
a
narrow
tax
base;
Inadequate
salaries
to
attract
and
retain
qualified
staff
and
lack
of
a
skilled
workforce;
and,
Lack
of
reliable
data
for
policy
making
and
planning
purposes.
7
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Table
6:
Somaliland
National
Budgets
by
Entity
(2009-2011)
2009
Actual
2010
Actual
2011
Appropriated
Expenditure
Ministries/Agencies
Expenditure
Budget
Expenditure
Budget
Budget
Sl.
Sh
US$
Sl.
Sh
US$
Sl.
Sh
US$
8
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Ministry
of
Public
Works
1,836,084,600
319,486
2,381,765,000
414,436
1,971,384,180
343,028
Coastal
Guards
2,154,801,657
374,944
2,161,379,387
376,088
6,403,093,217
1,114,163
Ministry
of
Information
2,469,718,000
429,740
2,829,318,000
492,312
7,671,675,200
1,334,901
President's
Office
2,600,419,200
452,483
2,600,419,200
452,483
819,000,000
142,509
Local
Court
3,461,680,200
602,346
4,243,360,800
738,361
5,250,228,560
913,560
House
of
Representatives
5,474,752,100
952,628
6,555,058,600
1,140,605
14,449,890,400
2,514,336
House
of
Elders
5,802,776,400
1,009,705
6,088,620,400
1,059,443
15,614,266,400
2,716,942
Ministry
of
Foreign
Affairs
&
International
Cooperation
5,837,295,040
1,015,712
4,597,004,640
799,896
6,734,909,088
1,171,900
Ministry
of
Health
&
Labor
7,231,589,760
1,258,324
8,783,810,960
1,528,417
16,344,798,558
2,844,058
National
Election
Commission
8,598,461,800
1,496,165
16,224,441,793
2,823,115
1,542,833,005
268,459
Ministry
of
Defense
11,840,770,177
2,060,339
12,346,564,127
2,148,349
23,437,079,570
4,078,142
Ministry
of
Interior
11,873,946,666
2,066,112
12,527,303,067
2,179,799
15,645,287,145
2,722,340
Ministry
of
Education
and
Higher
Studies
12,849,460,173
2,235,855
13,857,632,140
2,411,281
35,569,692,024
6,189,263
Custodial
Corps
15,101,232,551
2,627,672
17,366,838,836
3,021,896
28,928,928,370
5,033,744
Ministry
of
Presidency
16,280,804,280
2,832,922
11,777,255,563
2,049,288
36,927,624,324
6,425,548
Ministry
of
Finance
16,456,799,428
2,863,546
18,153,248,520
3,158,735
42,611,931,120
7,414,639
National
Police
Army
29,916,428,394
5,205,573
33,622,078,053
5,850,370
66,527,778,363
11,576,088
National
Army
80,275,711,636
13,968,281
87,580,662,108
15,239,370
133,672,365,037
23,259,503
Good
Governance
&
Anti-Corruption
Commission
0
1,276,428,400
222,103
Quality
Control
Commission
0
1,523,912,000
265,167
Immigration
Office
3,053,688,406
531,353
2,598,135,846
452,086
WFP
0
331,925,600
57,756
IOT
Commission
0
404,164,800
70,326
Presidential
Guards
4,324,324,812
752,449
7,390,013,962
1,285,891
Somaliland
Diaspora
Agency
0
509,876,600
88,720
National
Registration
Party
Commission
-
-
-
-
-
-
Hargeisa
Electricity
Agency
-
-
-
-
-
-
Law
Reform
Commission
-
-
306,784,800
53,382
346,828,800
60,350
National
Humanitarian
Commission
-
-
235,240,000
40,933
238,129,360
41,435
Fact
Finding
Massacre
Commission
-
-
289,800,000
50,426
439,145,000
76,413
TOTAL
265,190,104,732
46,144,093
310,259,111,704
53,986,273
529,935,322,245
92,210,775
Source:
Ministry
of
Finance,
2011
and
Geopolicity
Staff
Adjustments.
9
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on
Functional
Assignments
SOMALILAND
Final
Report
-2-
Current Framework for
Decentralized Governance
10
Study
on
Functional
Assignments
SOMALILAND
Final
Report
2.
CURRENT
FRAMEWORK
FOR
DECENTRALZED
GOVERNANCE
15. The
2012-2016
NDP
places
decentralized
delivery
at
the
center
of
education,
health
and
water
and
sanitation
delivery.
The
plan
states
that
the
development
of
effective
administrative
and
governance
structures
that
respond
to
and
meet
the
needs
of
the
people
is
one
of
the
most
critical
national
priorities.
Decentralization
and
public
participation
are
crucial
to
mobilizing
the
regions
and
civil
societies.
As
highlighted
in
Table
7
below,
education,
health
and
water
and
sanitation
are
placed
centrally
within
what
are
referred
to
as
the
Poverty
Reduction
Poles,
alongside
social
protection
and
housing
and
shelter.
Moreover,
the
plan
is
explicit
on
the
need
to
strengthen
the
current
approach
to
reform,
as
quoted
below:
The
limited
capacity
of
public
institutions
is
a
major
obstacle
that
stands
in
the
way
of
implementing
the
national
development
plan
and
the
realization
of
Vision
2030.
The
national
capacity
in
terms
of
the
effectiveness
of
institutions,
and
the
quality
of
human
resources
available
is
low
and
must
be
addressed
strategically.
The
strategy
must
aim
at
building
the
capacity
of
central
government
institutions,
local
governments,
private
sector
enterprises
and
community
organizations.
There
have
been
many
capacity
building
projects
supported
by
international
organizations
over
the
years.
Unfortunately,
these
have
been
fragmented,
ineffective
and
often
non-aligned
with
national
development
priorities.
(NDP,
Pg.
23)
16. Whilst
there
is
a
strong
agenda
promoting
decentralized
government,
neither
the
NDP
or
Law
No.
23/2002which
formally
regulates
the
regional
Executive
Committees
and
Development
Councilsis
clear
on
which
functions
should
be
decentralized
within
the
sector
or
to
local
government.
This
is
why
unbundling
of
the
sectors
is
the
vital
step
towards
clarifying
functional
assignments.
The
challenge
facing
this
process
therefore,
is
not
only
agreeing
the
functional
assignments
of
vertical
sector
and
horizontal
structures,
but
also
being
clear
on
which
service
delivery
model(s)
best
serves
the
sector.
This
has
not
been
done.
For
example,
with
the
EPHS
established
as
the
cornerstone
of
the
primary
health
care
system,
and
where
the
four
levels
of
delivery
have
already
been
established
as
production
functions,
any
process
of
decentralization
must
strengthen
implementation
of
this
policy,
rather
than
creating
parallel
assignments
between
the
sector
units
and
local
government.
This
requires
absolute
clarity
on
the
assignments
of
the
vertical
sector
and
local
governments
to
be
established.
In
the
case
of
education
service
provision,
which
is
already
decentralized
by
default
not
design,
however,
a
strong
role
for
local
government
could
be
envisaged
as
long
as
it
is
coordinated
with
sector
mandates.
In
the
case
of
WASH,
where
provision
is
through
PPP
and
community
delivery
models,
there
is
even
greater
evidence
to
suggest
a
service
delivery
model
that
local
government
would
be
central
to.
Economic
Growth
Poles:-
Sectors
that
will
drive
the
Poverty
Reduction
Poles:
-Public
sector
action
areas
growth
process
that
will
reduce
poverty
Macroeconomic
policies/fiscal
framework
Rural
development
Infrastructure
Local
government/decentralization
Agriculture,
Livestock
and
Fisheries
Social
services
Industry
and
Tourism
Health
Financial
Services
Education
Trade
and
services
Water
and
sanitation
Mining
and
minerals
Social
protection
Private
sector
Housing
and
shelter
Employment
Food
security,
and
Disaster
Risk
Management.
11
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on
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SOMALILAND
Final
Report
17. With
a
population
of
under
3.5
million,
the
main
driver
of
decentralization
is
the
need
to
promote
national
solidarity,
to
encourage
community
participation,
to
meet
the
needs
of
pastoral
communities
that
fall
outside
the
service
delivery
foot
print
of
state,
whilst
also
re-enforcing
bottom
up
accountability.
The
Ministry
of
Planning
states
that
the
Republic
of
Somaliland
has
a
population
of
around
3.85
million,
and
an
area
of
137,600
km2,
of
which
nearly
55%
of
the
population
are
nomadic.
The
annual
population
growth
rate
is
around
3.14%,
with
an
average
birth
rate
of
4.46%,
implying
increased
population
pressure
for
basic
and
essential
services.
Life
expectancy
at
birth
is
approximately
49
years.
Population
density
is
sparse,
and
public
infrastructure
limits
the
delivery
of
services.
Table
8
below
provides
the
names
of
regions
and
districts
by
graded
category,
showing
the
regions
and
districts
claimed
by
Government.
Districts
are
graded
based
on
production,
economy,
total
population,
land
area
etc.
The
ability
of
each
region
and
district
to
reach
self-sufficiency
is
considered
at
the
regional
level,
as
set
out
in
Article
112
of
the
Constitution.
Table
8:
Somalilands
Regions
and
Districts
by
Grade
According
to
Law
23/2002
12
Study
on
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Assignments
SOMALILAND
Final
Report
report
makes
explicit
that
whilst
certain
sectors
are
more
amenable
to
decentralization
to
local
government
(WASH),
and
others
(health)
are
not.
20. Critical
to
this
unbundling
exercise
is
describing
the
current
machinery
of
government,
and
the
constitutional
and
legislative
provisions
around
which
unbundling
must
be
shaped.
The
machinery
of
government
is
described
by
the
Constitution
of
the
Republic
of
Somaliland
as
are
legislated
responsibilities
for
the
three
tiers
of
government.
According
to
Articles
112
of
the
Constitutionwhich
together
with
Articles
110-111
define
the
local
government
system
and
principle
of
decentralization
of
Somalilandthe
administration
of
community
services,
such
health,
education
(up
to
elementary/intermediate
school
level),
and
water
are
the
responsibility
of
the
regions
and
districts
in
so
far
as
they
are
able
to
fulfill
these
functions.
The
problem
is
that
they
lack
the
capacities
to
meet
legislated
assignments
and
there
is
confusion
over
the
roles
of
top-down
central
Ministries
and
horizontal
local
government.
Furthermore,
various
laws
(such
as
public
finance
laws)
build
on
the
Constitution
in
respect
of
the
formal
decentralization
of
core
state
delivery
functions
to
sub-national
administration,
as
well
as
building
regions
and
districts
self-sufficiency
in
the
provision
of
key
services:
The
Somaliland
Constitution:
Article
109
of
the
Constitution
of
the
Republic
of
Somaliland
provides
the
architecture
of
state
and
framework
for
local
administration,
based
on
the
principle
of
self-
governance.
The
Constitution
provides
three
tiers
of
government,
namely
the
state
government
and
regional
(6)
and
district
(41)
administrations,
but
the
Constitution
also
outlines
bottom-up
accountability
structures,
which
include
districts
councils
and
village
committees:
Article
15
sets
out
state
responsibilities
for
education,
and
the
prioritization
of
the
universal
access
to
primary
education,
especially
at
regional
and
district
levels;
Article
17
sets
out
state
responsibility
for
health
care;
Article
109
sets
out
the
structure
of
the
state;
Article
110
sets
out
the
administration
of
the
regions
and
districts;
Article
111
sets
out
the
organization
of
regional
and
District
Councils
and
defines
the
power
and
responsibilities
of
the
Chairman
of
regional
and
District
Councils;
and,
Article
112
sets
out
the
principles
of
de-centralization
of
administrative
powers
and
responsibility
for
service
provision.
Executive
Structure:
The
executive
branch
is
established
under
the
President,
Vice-President
and
a
Council
of
Ministers.
Law
No.
23
provides
power
to
the
Ministry
of
Interior
(MoI)
to
supervise
local
authorities
but
responsibility
for
service
delivery
in
the
three
target
sectors
include
the
(i)
MoEHS,
(ii)
MoH,
and
(iii)
Ministry
of
Mining
Energy
and
Water
Resources
(MMEWR).
The
Ministries
of
Finance
and
Ministry
of
Planning
also
provide
critical
inputs
to
the
sectors,
as
shown
in
Figure
2
below.
Regions
and
Districts
Self
Administration
Law
No.
23:
There
are
a
number
of
laws
that
promote
decentralized
service
delivery
in
Somaliland
although
it
is
Law
No.
23/2002
which
formally
regulates
the
regional
Executive
Committees
and
Development
Councils.
These
are
presided
over
by
a
Regional
Chairperson,
Deputy
Chairman
and
an
Executive
Secretary,
constituting
the
decentralized
pillars
of
the
executive
branch.
Under
Law
No.
23
provision
of
key
servicessuch
as
education,
health
and
WASHare
the
duty
of
Local
District
Councils.
The
law
further
establishes
the
relationship
between
the
Committees
and
Councils
and
the
state
government
in
particular
the
Ministry
of
the
Interior,
which
is
responsible
for
supervising
and
strengthening
local
governments.
Annex
2
provides
the
regional
and
district
names
by
grade.
Sector
Policies:
The
sectors
have
well-developed
national
education
and
health
policies
(2011),
and
there
is
also
an
excellent
Decentralization
Policy
Framework
(2008)
for
the
MoEHS.
The
sector
13
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on
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SOMALILAND
Final
Report
policies
are
all
strongly
focused
on
decentralized
delivery
but
they
are
not
always
clear
in
the
relationship
between
sector
Ministries
and
local
government.
Figure
2:
Somalilands
Executive
Structure
(Illustrative)
5
5
This
organizational
structure
is
drawn
from
http://www.somalilandlaw.com/administrative_law.html
14
Study
on
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Assignments
SOMALILAND
Final
Report
22. The
Somaliland
Local
Government
Induction
Module
For
Councilors
And
Technical
Staff,
established
in
2009,
provides
a
clear
description
of
the
functional
mandates
of
regional
and
district
Councils
and
Administration,
and
Village
Councils,
based
on
Law.
23/2002.
It
is
stated
that
the
Regional
and
District
Councils
are
part
of
Central
Government,
and
that
the
District
Technical
Committees
are
represented
by
the
Secretary
of
the
Local
Council
(Executive
Secretary)
and
Heads
of
government
sector
agencies
at
the
district
level.
In
terms
of
coordination,
it
is
further
stated
that
the
Regional
Governor
with
the
support
of
District
Mayor
is
responsible
for
coordinating
the
activities
of
the
government
agencies
at
the
district
level;
to
include
oversight
of
policy
discharge,
planning,
budgeting,
financing
and
reporting.
Broad
functional
assignments
are
prescribed
as
follows:
Regional
Councils:
The
Regional
Council
consists
of
the
Regional
Governor;
Deputy
Regional
Governor;
the
Executive
Secretary
of
the
Region
(as
the
Secretary);
the
Mayors
of
the
Districts
in
the
Region
(as
Members);
and
the
Heads
of
Government
Departments
in
the
Region.
Roles
and
Responsibilities
of
the
Regional
Councils
are:
To
reach
decisions
about
the
political,
economic,
administrative,
security
and
development
matters
which
concern
the
region;
To
review
the
budgets
of
the
Districts
in
the
region;
To
strengthen
the
peace
and
assure
security;
To
review
the
administrative
and
political
resolutions
of
the
Districts
in
the
region;
To
mediate
in
any
disputes
between
the
Districts
or
between
the
communities
of
the
Region;
and,
To
form
sub-committees
to
which
the
Council
can
delegate
specific
duties.
District
Councils:
District
Councils
have
self-administration
powers
and
can
levy
and
collect
taxes,
provide
services
and
lead
district
development
planning.
District
Councils
are
formed
through
competitive
elections
contested
by
the
political
parties
in
the
Local
Council
elections.
The
District
Mayor
chairs
the
District
Council
and
the
secretary
of
the
District
Council
is
the
Executive
Secretary.
In
relation
to
the
three
sectors
under
assessment,
the
District
Councils
have
full
powers
to
perform
a
wide
range
of
functions
and
to
offer
a
wide
range
of
services
within
their
areas
of
jurisdiction;
these
are:
Promotion
of
economic
growth
and
development
including
initiation
and
implementation
of
development
programs
and
projects
at
the
local
level;
Promotion
and
care
of
the
social
welfare,
such
as
education,
health,
water,
electricity,
sanitation,
etc.;
Care
and
welfare
for
the
environment,
forestation,
and
animals
and
economic
infrastructure
in
collaboration
with
relevant
sector
ministries;
Generation,
mobilization
and
allocation
including
accounting
for
the
use
of
public
resources
Inspection
of
new
buildings,
and
those
that
are
being
renovated
or
require
demolition
in
collaboration
with
the
Ministry
of
Public
Works
and
Housing;
Provision
and
maintenance
of
public
infrastructure
e.g.
construction,
improvement
and
care
of
roads
inside
the
towns
of
the
district
in
collaboration
with
the
Ministry
of
Public
Works
and
Housing;
Promotion
of
participatory
planning
and
community
participation
in
local
decision
making;
Establishment
of
sub-committees
as
required.
15
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SOMALILAND
Final
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Village
Councils:
The
Village
Council
does
not
have
self-administration
powers
and
therefore
cannot
levy
taxes
nor
have
their
own
functions.
Rather,
the
Village
Councils
are
an
extended
arm
of
the
district
and
carry
out
certain
functions
on
behalf
of
the
district
administration.
The
members
of
the
Village
Councils
are
not
to
exceed
seven
members
and
are
proposed
by
the
local
District
Mayor
in
consultation
with
the
business
people,
elders
and
intellectuals
of
the
village,
and
are
approved
by
the
Local
District
Council.
It
is
stated
that
ensuring
representation
at
different
levels
is
critical
condition
for
effective
Village
Council.
The
Village
Council
is
allocated
the
following
general
functional
assignments,
relevant
to
this
study:
To
spearhead
and
coordinate
activities
aimed
at
improving
the
welfare
and
development
of
the
community
such
as
health,
education,
water,
electricity
and
hygiene,
etc;
To
encourage
citizens
to
participate
in
decision
making
processes
at
the
district
level,
thereby
ensuring
the
District
Council
is
accountable
to
its
citizens;
and,
To
improve
the
relationship
and
trust
between
the
district
authority
and
citizens
by
improving
the
transparency
in
public
administration
and
efficiency
in
public
expenditure.
23. The
Central
Government
employsaccording
to
the
annual
budget
20119,843
civil
servants.
37%
are
in
Education
and
18%
in
Health.
Finance
is
the
next
largest
ministry
with
6%.
There
are
four
grades,
A
(most
senior),
B,
C,
and
D.
About
60%
do
not
have
a
secondary
education,
a
further
35%
either
have
a
secondary
education,
and
about
5%
are
graduates.
Women
make
up
27%
of
the
civil
service;
there
are
110
directors.
66%
of
staff
are
frontline
service
providers
and
work-in
the
regions
and
regional
offices
of
the
central
government.
There
is
about
3,500
staff
in
local
government,
almost
900
of
which
work
for
the
Municipality
of
Hargeisa
and
305
for
the
Municipality
of
Berbera.
There
are
about
4,773
police,
1,026
custodial
corps,
326
coast
guards
and
10,365
military
forces.
In
total
there
are
16,952
uniformed
civil
servants
and
9,
843
non-uniformed
civil
servants,
leading
to
a
grand
total
of
26,795
uniformed
and
non-uniformed
civil
servants.
(Source,
MoF
MTFF)
24. A
map
of
Somaliland
is
provided
below,
showing
the
regions
and
contested
areas.
16
Study
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SOMALILAND
Final
Report
Figure
3:
Map
of
Somaliland
17
Study
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SOMALILAND
Final
Report
-3-
Education Sector
Assessment Findings
18
Study
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Final
Report
QUICK
SUMMARY
OF
EDUCATION
SECTOR
FINDINGS
In
Somaliland,
a
National
Education
Policy
has
been
in
place
since
2005
and
a
National
Education
Act
was
approved
in
2006.
There
is
also
a
Somaliland
Education
Sector
Strategic
Plan
for
the
period
2007-
2011
and
an
Operational
Plan
for
2009.
The
National
Development
Plan
(2012-2016)
remains
the
most
recent
policy
document.
In
addition,
a
Free
Primary
Education
(FPE)
policy
was
introduced
in
January
2011.
Additional
documents
approved
include:
a
Strategic
Plan
for
Primary
Education
for
Disadvantaged
Groups,
a
document
outlining
Strategic
Issues
in
Teacher
Management
and
Development
(approved
in
2008)
a
Funding
Plan
for
Expanded
Access
to
Primary
Education,
a
Secondary
Education
and
Technical
and
Vocational
Training
(TVET)
Strategic
Document
for
the
period
2008-2009,
a
Teacher
Education
Policy,
a
Teachers'
Code
of
Conduct,
and
an
Accelerated
Basic
Education
(ABE)
Curriculum,
Transfer
Policy
and
Implementation
Strategy.
In
addition,
a
Gender
Policy
has
been
drafted
and
a
Gender
Scholarship
Fund
is
in
place.
The
2005
National
Education
Policy
and
2007-2011
Sector
Plan
do
not
explicitly
stipulate
the
division
of
roles
and
responsibilities
between
the
central,
regional
and
local
government
layers,
and
they
do
not
appear
to
reference
Law
23/2002.
Further,
although
Law
23/2002
(The
Republic
Of
Somaliland
Regions
And
Districts
Law)
stipulated
that
under
Article
32
that
the
District
Council
shall
establish
a
Social
Affairs
Sub-Committee,
responsible
for
for
health,
water,
cleansing,
education,
sport,
arts
and
literature
and
under
Article
112
(I)
it
is
similarly
stated
that
the
administration
of
community
services,
such
health,
education
up
to
elementary/intermediate
school
level
shall
be
the
responsibility
of
the
regions
and
districts
in
so
far
as
they
are
able
to
do
so.
Unfortunately
most
Grade
B,
C
and
D
districts
have
insufficient
resources
to
fulfill
this
broad
mandate,
with
a
dedicated
staff
of
only
1-2
in
most
cases;
none
in
others.
In
2009
actual
spending
in
education
was
US$2,235,855
in
2010
it
was
US$2,411,281
and
in
2011
it
increased
almost
three
fold
to
US$6,189,263.
As
a
result
beyond
payment
of
basic
wages
and
teachers
stipends
government
performs
few
actual
production
functions
but
this
may
soon
change.
Where
provision
functions,
which
include
policy
formulation,
planning,
budgeting
and
regulatory
oversight
and
enforcement
are
performed,
lack
of
REO
and
DEO
staff,
facilities
and
transport
undermine
governments
ability
to
set
and
enforce
sector
governance
standards
in
the
districts.
With
a
lot
of
external
funding
and
involvement
of
the
private
sector
(Diaspora)
and
local
communities,
service
delivery
is
decentralized
by
default
and
not
design,
but
also
badly
fragmented
with
few
common
standards
and
multiple
curricula.
There
is
also
a
wide
difference
in
salary
structures
and
top-ups
between
state
and
non-state
schools.
Although
perhaps
only
the
first
6
regions
have
achieved
the
minimum
requirement
for
regional
management
(including
premises),
the
newly
nominated
7
regions
lack
basic
resources
to
conduct
their
work
and
similarly
District
Education
Officers
are
not
always
staffed.
However,
based
on
the
results
of
the
field
assessment,
the
following
functional
assignments
are
provided
by
REO
and
DEOs,
where
they
exist.
A
survey
of
sub-national
staff
and
their
minimum
needs
also
needs
to
be
undertaken.
The
REOs,
based
on
the
results
of
fieldwork,
currently
have
the
following
functional
assignments:
Representing
the
MoEHS
in
all
relevant
regional
decision
making
meetings;
Member
of
their
respective
Regional
Governor's
Council
and
other
relevant
Regional
Committees;
Supervision
and
oversight
of
all
educational
activities
in
their
respective
regions;
Support
the
planning
of
education
needs
at
the
regional
level;
Manage
the
distribution
of
public
funds
and
stipends
and
oversight
of
funds
collected
and
used
by
CECs/SECs
(School
Education
Committees);
Supervising
MoEHS
programs
and
projects
with
assistance
from
their
staff
and
the
DEOs;
Ensuring
that
national
examinations
are
properly
organized
and
conducted
in
schools
and
centers;
Coordinating
examination
supervision
with
the
National
Education
Council
Directors,
in
their
respective
MoEHSs;
19
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SOMALILAND
Final
Report
Accountable
for
the
delivery
of
educational
services,
assisted
by
Regional
Inspectors/support
staff.
Responsible
for
mediating
conflicts,
and
dealing
with
issues
related
to
discipline
within
their
own
jurisdiction,
including
down
to
the
school
level,
if
necessary;
Representing
the
Minister
unless
the
issue
is
political,
in
which
case
it
is
passed
to
the
MoEHS;
and,
Responsible
teachers
management
and
deployed
in
their
respective
regions.
The
DEOs,
based
on
the
results
of
fieldwork,
currently
have
the
following
functional
assignments:
Responsible
for
the
functioning
of
schools,
teachers
and
head
teachers
under
their
purview;
Representing
the
REO
at
the
District
Education
Committee
and
District
Council
levels;
Coordinating
with
the
Social
Affairs
Sub-Committee
to
support
district
education
needs
planning;
Providing
technical
and
other
support
to
schools
in
their
districts,
working
closely
with
Head
Teachers;
Mediating
between
teachers
and
the
community
and
work
in
close
collaboration
with
Head
Teachers
(HTs)
to
make
sure
that
SECs
are
up
and
functioning;
Assisting
the
REO
in
the
distribution
of
stipends
(if
requested
by
the
REO
to
do
so)
and
other
MoEHS
payments
to
teachers
and
HTs
at
the
school
level;
They
are
the
MoEHSs
and
REOs
first
line
of
support
in
dealing
with
school
level
discipline
and
other
problems;
Representing
REO
and
MoEHS
interests
at
the
District
Council
level,
reporting
back
to
the
REO
district
level
education
needs
and
problems;
Responsible
for
disseminating
information
to
the
district
level
of
changes
in
rules
and
other
changes
in
practices
pertaining
to
the
delivery
of
educational
services
at
the
local
level.
Keeping
REOs
well
informed
about
the
educational
situation
in
their
own
districts.
The
Proposed
Functional
Assignments
in
Education
for
the
District
Council,
implemented
by
the
Social
Affairs
Sub-Committee,
are
as
follows:
Revenue
and
expenditure
assignments
to
finance
education
investments
in
coordination
with
MoEHS
policy/planning
guidelines;
Participated
in
Bottom-Up
District
Education
Planning;
Approving
the
District
Education
Plans
and
Annual
Budget
Estimates;
Supports
the
DEO
and
REOs
in
bottom-up
planning
district
education
needs;
Oversight
of
school
construction
standards,
location
and
combined
services
based
on
central
guidelines
and
standards;
Interacts
and
motivates
communities.
There
are
other
assignments
that
could
be
outlined,
but
this
would
depend
on
the
service
delivery
model
being
supported,
and
these
need
to
be
defined.
However,
with
the
majority
of
funding
for
the
sector
being
off-budget
(as
addressed
within
the
remits
of
the
ongoing
ESP
work)
the
main
thrust
of
Government
effort
must
be
on
setting
policy,
planning,
budgeting
and
regulatory
oversight
and
enforcement
guidelines
and
building
its
staffing
capacity
with
the
aim
of
increasing
compliance
of
stakeholders
towards
a
less
fragmented
service
delivery
model.
Given
the
high
degree
of
fragmentation,
a
standard
Service
Delivery
Model
needs
to
be
identified
(for
example
involving
School
Based
Management)
for
primary
and
secondary
education,
to
lead
the
charge
setting
school
standards
and
governance
practices
to
increase
conformity.
Using
new
survey
data,
it
will
be
essential
to
link
school
development
plans
with
district
plans,
around
which
standard
measures
(student/teacher
ratios,
catchment
areas,
costs)
can
be
executed;
While
support
has
been
provided
by
UNICEF,
IPs
and
under
the
ESP,
large
parts
of
Somaliland
(nomadic
areas)
are
uncovered
by
the
current
delivery
system;
and,
Costing
will
be
critical
to
increasing
budget
allocations
and
demonstrating
to
government
the
need
to
better
govern
off-budget
contributions.
20
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SOMALILAND
Final
Report
3.
EDUCATION
SECTOR
ASSESSMENT
FINDINGS
6
3.1.
INTRODUCTION
25. This
section
presents
the
results
of
the
education
sector
unbundling
exercise,
established
through
in-depth
analysis
conducted
over
a
19
day
period
of
field
work
at
central,
regional,
district
and
school/Village
Council
levels,
which
included
interviews
with
a
total
of
61
key
informants.
Whilst
all
key
policy
and
strategy
documents
were
made
available,
the
assessment
was
impeded
by
lack
of
data
(i.e.
on
staffing,
staff
positions
filled
in
the
regions,
on
teacher
numbers
and
sector
spending
including
off-budget
flows)
in
general.
The
assessmentbased
on
the
observations
and
constraints
outlined
in
this
sectiondescribes
the
functions
and
sub-functions
of
the
formal
state
education
system,
which
require
substantial
re-organization
despite
the
excellent
MoE
Decentralization
Policy
Framework
(2008)
which
outlined
the
following
important
policy
documents
to
guide
implementation
at
the
decentralized
levels:
26. This
Policy
Framework
for
the
Decentralization
of
Education
is
largely
based
on
the
Somaliland
National
Education
Policy
(SNEP),
the
draft
Somaliland
National
Education
Act
(SNEA)
and
intensive
discussions
with
education
stakeholders.
(MoE,
DPF
2008).
An
Operational
Plan
for
2009
was
also
developed
to
support
the
process
of
decentralization.
This
decentralization
policy
sets
out
the
framework
for
the
definition
of
powers
and
responsibilities
of
the
various
structures
responsible
for
the
implementation
of
the
Education
Sector
Strategic
Plan
(ESSP),
including
the
MoEHS,
regional
and
district
offices
and
stakeholders
at
all
levels.
A
cornerstone
of
MoEHSs
strategy
has
therefore
been
to
guarantee
that
core
educational
resources
(human,
material
and
financial)
are
distributed
geographically
on
an
effective,
efficient
and
equitable
basis.
The
policy
framework
states
that
(i)
effectiveness
requires
attention
to
the
appropriateness
of
training,
building
and
materials
development
programs
(ii)
efficiency
requires
that
programs
are
delivered
on
time
and
at
the
lowest
possible
cost
and
(iii)
that
equity
requires
that
we
spend
more
per
capita
on
disadvantaged
students,
because
their
education
costs
more
as
a
result
of
factors
such
as
remoteness,
population
mobility
and
prior
educational
disadvantage.
27. Despite
the
strong
work
already
conducted,
undertaking
an
unbundling
of
the
education
sector
is
however
made
complex
by
numerous
factors,
including
the
current
structure
of
the
service
delivery
model
which
includes
significant
non-state
financial
flows
which
are
critical
to
delivery.
Currently,
most
sector
production
functions
are
already
highly
decentralized
and
there
appears
to
be
good
argument
to
therefore
strengthen
sector
provision
functions
(management
of
policy,
planning,
6
The
central
government
employsaccording
to
the
annual
budget
20119,843
civil
servants.
37%
are
in
Education
and
18%
in
Health.
Finance
is
the
next
largest
ministry
with
6%.
There
are
four
grades,
A
(most
senior),
B,
C,
and
D.
About
60%
do
not
have
a
secondary
education,
a
further
35%
either
have
a
secondary
education,
and
about
5%
are
graduates.
Women
make
up
27%
of
the
civil
service;
there
are
110
directors.
66%
of
staff
are
frontline
service
providers
and
work-in
the
regions
and
regional
offices
of
the
central
government.
There
is
about
3,500
staff
in
local
government,
almost
900
of
which
work
for
the
Municipality
of
Hargeisa
and
305
for
the
Municipality
of
Berbera.
(Source,
MoF
MTFF)
21
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SOMALILAND
Final
Report
budgeting,
execution
and
regulatory
oversight
and
monitoring)
at
central,
regional
and
district
levels.
This
has
implications
for
the
findings,
pilots
and
shared
services
models
to
be
proposed.
This
review
is
therefore
shaped
by
the
following
broad
issues
and
observations:
Lack
of
Data:
Apart
from
the
Primary
School
Census
(Sept
2011)
and
other
research
initiatives,
data
and
information
on
the
sector
is
not
readily
available,
and
often
not
produced
at
all,
which
impacts
the
depth
and
often
quality
of
analysis;
Legislative
Issues:
There
are
numerous
pieces
of
legislation
which
show
a
significant
political
commitment
to
improve
decentralized
delivery,
yet
there
appears
to
be
problems
in
turning
this
commitment
into
practice,
due
to
capacity,
fiscal
and
coordination
constraints;
Already
Decentralized
Education
Production
Functions:
With
large
off-budget
flows
and
strong
private
sector
financing
from
the
Diaspora,
as
well
strong
Village
Council
community
in
education
service
delivery,
the
current
service
delivery
model
is
already
highly
decentralized
in
many
ways.
Strengthening
provision
functions
at
all
levels
of
administration
is
therefore
required,
although
in
many
areas,
government
has
made
considerable
improvements
in
recent
years;
and,
Sector
vis
a
vis
local
government
production
and
provision
mandates:
Unbundling
service
delivery
assignments
requires
clarity
as
to
whether
decentralization
is
being
considered
within
the
MoEHS
or
to
the
District
Councils
and
Village
Councils.
28. The
data
and
conclusions
presented
in
this
report
are
the
product
of
field-based
research
carried
out
over
a
period
of
just
under
three
weeks.
Illustrative
of
this
fieldwork,
a
comprehensive
field
trip
conducted
in
Gabiley,
a
small
rural
town
West
of
Hargeisa,
where
key
interviews
where
held
with
those
responsible
for
the
delivery
and
supervision
of
education
services
including
(i)
schools,
(ii)
regional
offices,
(iii)
the
Mayors
Office,
(iv)
national
and
international
NGOs,
(v)
JPLG
UN
partner
agencies,
(vi)
four
supporting
ministries,
(vii)
a
university
and
(viii)
a
technical
vocational
training
center.
These
interviews
served
not
only
to
provide
a
broad
and
clear
picture
of
the
reality
on
the
ground,
but
also
to
verify
information
previously
gathered
at
the
ministry
level
and
from
preparatory
deskwork.
Further
facilitating
understanding
of
both
state
and
non-state
contributions
to
education,
a
focus
group
composed
of
School
Education
Council
members
was
held
with
the
assistance
from
Pastoralist
&
Environmental
Network
in
the
Horn
of
Africa
(PENHA);
a
Hargeisa-based
UK
NGO
responsible
for
pastoralist
environmental
and
education
programs.
This
and
other
field
visits,
supported
by
the
recently
conducted
District
Capacity
Assessments,
provides
a
clear
understanding
of
the
current
service
delivery
model
and
where
functional
assignments
should
be
cast,
and
strengthened,
across
the
three
tier
structure
of
state
and
into
the
private
sector
and
communities.
30. In
this
context,
the
incumbent
Minister
is
committed
to
undertaking
vigorous
internal
reforms,
and
has
taken
steps
towards
establishing
mandatory
work
hours
for
staff
at
all
levels,
and
implementing
a
professional
code
of
ethics
with
an
emphasis
on
providing
quality
services
to
the
public.
These
efforts
are
laudable.
Furthermore,
with
help
from
the
new
MoEHS
Human
Resources
Department,
established
with
support
through
the
Integrated
Capacity
for
Somali
Education
Administrations
(ICDSEA)
program,
the
current
Minister
has
begun
a
re-organization
process
including
the
introduction
of
a
comprehensive
filing
system
for
all
staff.
To
aid
this
re-organization
process,
Private
Education
and
Higher
Education
directorates
have
been
instituted.
Of
remaining
concern,
however,
are
non-functioning
key
departments,
including
inspectorate,
financial
management,
formal
education
and
educational
statistics
functions.
Plans
exist
for
their
upgrade
and,
if
necessary,
replacement
of
existing
non-performing
staff.
31. The
MoEHS
is
not
alone
in
the
sector,
with
other
executive
structures
playing
a
key
role
in
the
sector
including:
The
Ministry
of
the
Interior:
MoI
is
responsible
for
providing
legal
and
monitoring
oversight
for
services
delivered
at
the
regional
and
district
levels;
The
Ministry
of
Planning
and
Development:
MoPD
is
responsible
for
approving
and
monitoring
the
implementation
of
national
and
sectoral
plans,
on
a
quarterly
and
annual
basis;
The
Ministry
of
Finance:
MoF
is
responsible
for
approving
and
monitoring
the
education
sector
budget
and
expenditures,
setting
budget
ceilings,
agreeing
recurrent
and
capital
costs
splits
and
releasing
quarterly
advances
to
finance
the
agreed
appropriations
bill;
The
Ministry
of
Labor
and
Social
Affairs:
MoLSA,
in
coordinating
with
the
MoEHS,
supports
youth
development,
training
and
employment,
and
monitoring
gender
equity
in
the
allocation
of
jobs;
The
Ministry
Religion
and
Endowments:
Which
has
joint
responsibility
and
oversight
for
the
establishment
and
licensing
of
Quranic
Schools
(Madrasahs).
32. Regional,
District
and
Village
Councils:
The
Regional,
District
and
Village
Councils
are
the
key
delivery
structures
for
the
state
education
system,
with
all
councils
being
considered
structures
of
government.
Of
the
six
regions
and
41
districts,
there
are
hundreds
of
Village
Councils,
which
play
a
critical
role
in
meeting
access,
quality
and
equity
goals.
33. International
Cooperation
Partners:
Major
donors,
UN
agencies
and
NGOs
actively
supporting
MoEHS
service
development
and
delivery
activities
include:
UNICEF,
USAID,
EU
and
the
African
Education
Trust
(AET),
Mercy
Corps,
CfBT,
Save
the
Children,
the
Norwegian
Refugee
Council,
ADRA,
SYFN,
and
a
plethora
of
local
NGOs.
Donors
remain
the
primary
financiers
of
both
production
and
provision
functions.
34. Private
Sector:
The
National
Development
Plan
rightly
sees
the
private
sector
as
the
engine
and
driver
of
growth,
as
it
constitutes
90%
of
GDP
and
the
Diaspora
provides
around
US$400
million
a
year,
of
which
a
large
percentage
goes
to
education.
Quranic
schools
are
also
critical
to
the
sector
and
these
are
all
funded
through
private
flows.
The
private
sector
is
also
critical
to
building
school-based
infrastructure.
35. Parents,
Teachers
and
Children:
Needless
to
say
parents,
teachers
and
children
are
at
the
very
center
of
the
education
system,
providing
the
day-to-day
interface
for
delivery
and
the
being
the
main
structure
responsible
for
security
bottom
up
accountability.
The
extent
to
which
parents,
teachers
and
children
are
central
to
school
based
management
however
depends
heavily
on
how
the
school
is
both
financed
and
governed.
23
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36. Figure
4
below
provides
the
proposed
organizational
structure
of
the
MoEHS,
around
which
the
main
functional
(decision-making)
units
can
be
identified.
Whilst
this
is
not
the
current
structure,
it
is
the
structure
the
Minister
is
working
towards.
24
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Figure
4:
Somaliland
-
Ministry
of
Education
and
Higher
Studies
Proposed
Organizational
Structure
25
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Final
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3.2.2
SUB-SECTORS8
37. The
MoEHS
organizational
structure
proposed
by
the
new
Minister
and
advisory
team
is
presented
in
Figure
4
above,
showing
education
being
split
into
formal
and
informal
education.
The
formal
educational
system
of
Somaliland
comprises
eight
years
of
primary
education
(four
years
of
lower
primary
and
four
years
of
upper
primary)
and
four
years
of
secondary
education.
University
education
normally
takes
four
years
to
complete.
Thus,
it
is
a
4-4-4
system.
The
Somaliland
MoEHS
also
recognizes
non-mainstream
adult
and
vocational
education
provided
mostly
by
the
private
and
not
for
profit
sectors
(NGOs)
as
integral
parts
of
the
education
system.
Currently
the
Somali
language
is
the
official
medium
of
instruction
for
primary
schools
(1-8).
English
is
introduced
as
a
subject
from
Grade
2
and
is
the
medium
of
instruction
for
secondary
education
(9-12).
Arabic
is
taught
as
a
language
subject
from
1st
to
the
12th
grade.
There
are
also
many
private
schools
where
Arabic
is
main
medium
of
instruction.
(NDP,
2012).
Based
on
the
structure
of
the
education
system,
the
following
functional
classification
for
the
sub-sectors
can
be
presented:
Primary
(Basic
Education)
Education
(627
schools):
Eight
years
of
education,
including
school
feeding
programs
at
primary
school
level
and
coordination
and
regulation
of
private
schools
Secondary
Education
(68
Schools):
Four
years
of
secondary
education,
around
the
core
state
curricula
and
other
curricula
adopted
for
Quranic
schools
for
example;
Non-Formal
Education:
Adult
basic
education,
alternative
education,
TVET;
and,
Higher
Education:
The
first
university
(Amoud
University)
was
launched
in
1998
but
by
2011
there
were
16
higher
education
establishments
registered
with
the
MoEHS,
with
a
total
student
population
of
about
15,000.
There
is
at
least
one
university
in
each
region.
38. Primary
Education:
Primary
education
is
Somalilands
largest
education
sub-sector,
serving
the
basic
education
needs
of
170,930
children,
across
six
regions.
Increased
demand
for
primary
schoolingespecially
after
the
in-coming
government
administrations
announcement
that
primary
education
will
now
be
provided
free
of
charge
for
all
Somaliland
childrenhas
put
excessive
pressure
on
already
inadequate
service
delivery
systems.
Until
1991
there
were
just
46
primary
schools
in
Somaliland.
Since
then,
education
has
expanded
quickly
with
the
number
of
primary
schools
rising
in
the
academic
year
1995-6
to
159,
though
with
total
enrolments
of
just
8,667
students.
Furthermore,
according
to
the
Somaliland
NDP
(2012-2016)
gender
ratios
at
primary
level
are
also
of
concern,
with
the
Gender
Parity
Index
(GPI)
recording
only
0.4
for
primary
education
and
0.2
for
secondary
schools.
This
translates
to
a
ratio
of
just
four
girls
for
every
six
boys
in
primary
schools,
and
just
two
girls
for
every
eight
boys
in
secondary
schools.
(NDP,
Pg.
242).
The
contrast
between
enrolment
figures
from
1995/96
(See
Table
9)
and
2008/09
(See
Table
10)
shows
the
considerable
improvement
over
this
period.
Table
9:
Somaliland
Primary
and
Secondary
Education
Enrolment
(1995/6)
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private
self-supporting
institutions.
(NDP,
2012-2016).
The
proposed
structure
of
the
Ministry
of
Higher
Education,
which
has
still
to
be
established,
has
been
provided
by
the
Minister
of
Education
and
is
presented
in
Figure
5
below.
Technical
and
Vocational
Training:
This
important
area
encompasses
numerous
private
sector
centers
and
NGO
initiatives
aimed
at
unemployed
and
out-of-school
youth,
rural
communities
and
marginalized
populations
including
Somalilands
nomadic
communities.
Some
TVET
centers
combine
a
variety
of
skills
training
with
adult
literacy
and
formal
education
classes,
providing
second-chance
learning
environments
for
young
adults
who
failed
to
complete
their
primary
and
secondary
education.
TVET
training
centers
are
frequently
donor-supported
and
run
by
international
or
local
NGOs.
Two
leading
providers
of
this
service
are
Candlelight
(CLHE)
and
the
Horn
of
Africa
Voluntary
Youth
Committee
(HAVOYOCO)
who
provide
a
variety
of
vocational
educational
services.9
Other
significant
support
has
been
provided
by
SC
(EU-funded).
Decentralized
Education
Policy
Framework:
There
are
a
number
of
laws
that
promote
decentralized
service
delivery
although
it
is
Law
No.
23/2002
formally
regulates
the
regional,
district
and
Village
Councils
in
Somaliland.
The
powers
and
functions
of
the
District
Councils
have
been
provided
above.
The
law
also
defines
the
roles
and
responsibilities
(services
to
be
delivered)
by
the
Local
Councils,
and
the
other
stakeholders
in
the
local
administration
system.
It
also
establishes
the
relationship
between
the
District
Councils
and
the
state
government
in
particular
the
MoI,
which
is
responsible
for
supervising
and
strengthening
local
government.
Community
and
special
education
9
Such
education
services
include,
for
example:
(i)
training
of
teachers,
(ii)
peace
education,
(iii)
environmental
education,
(iv)
training
in
carpentry,
plumbing,
electrical
services,
electronics,
tailoring,
secretarial
and
computer
skills,
motor
mechanics,
food
preparation,
(v)
distance
education
by
radio,
(vi)
adult
literacy
classes,
(vii)
the
rehabilitation
education
and
training
of
street
children,
and
(viii)
other
humanitarian
services
aimed
at
poor
and
marginalized
groups.
29
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services
are
mainly
delivered
by
NGOs
and
funded
by
donors.
Community
development
activities
include,
for
example,
work
with
nomadic
and
displaced
communities
in
(i)
livestock
keeping,
(ii)
bee
keeping,
and
(iii)
learning
agricultural
practices
and
techniques
for
conserving
water
and
caring
for
the
environment.
PENHA
is
exemplary
in
that
it
combines
training
and
education
to
marginalized
rural
communities
in
conservation,
environmental
stewardship,
livestock
keeping,
farming
and
other
appropriate
agricultural
practices
with
a
high
degree
of
success.
Special
education
provision,
which
is
still
only
nascent
in
Somaliland,
requires
substantial
financial
and
technical
support
with
few
centers
currently
run
and
supported
by
donors
and
international
NGOs
such
as
Handicap
International;
Media
and
Communications:
Media
and
Communications
are
currently
being
promoted
through
NGOs
such
as
AET
in
the
form
of
distance
education
by
radio,
with
financial
and
technical
support
from
the
BBC
and
DFID.
Social
mobilization
strategies
are
also
frequently
supported
by
UN
agencies
such
as
UNICEF
and
UNIFEM,
and
use
local
media
outlets
including
radio,
television
and
the
local
press
to
promote
social
messages
and
raise
public
awareness
on
pertinent
issues
including
Female
Genital
Mutilation
(FGM);
Accelerated
Alternative
Basic
Education:
Strategies
in
this
respect
are
being
developed
to
reach
out-of-school
youth
and
school
dropouts
with
equivalency
programs
that
can
help
them
catch
up
and,
if
possible,
re-integrate
into
formal
education,
either
at
the
primary
or
early
secondary
levels.
These
strategies
receive
significant
support
from
donors
and
some
UN
agencies.
AET
for
its
part
has
pioneered
this
approach
successfully
with
financial
support
from
UNICEF;
Family
Life
Education:
Aimed
mainly
at
girls,
young
women
and
men,
Family
Life
Education
teaches
life
skills,
child
rearing,
primary
health
care
and
other
essential
family
supporting
skills
and
knowledge.
This
training
is
often
combined
with
literacy,
or
other
formal
education
courses.
A
number
of
local
NGOs
such
as
CLHE
and
HAVOYOCO
use
this
approach
to
change
existing
behaviors
and
promote
family
health
care
and
better
child
nurturing
practices;
and,
Adult
and
Youth
Education:
Strongly
promoted
by
the
MoEHS,
donors
and
NGOs
in
a
variety
of
ways,
Adult
Youth
Education
is
often
linked
to
numeracy
and
literacy
classes
which
are
integrated
into
a
broad
range
of
skills
training
approaches.
30
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Report
Figure
6:
Structure
of
Non-Formal
Education
Department
to
MoEHS,
Somaliland
3.2.3
SERVICE
PRODUCTION
PROCEDURES
47. According
to
the
MoEHS
structure
proposed
above,
service
provision
is
to
be
concentrated
in
four
departments
and
one
unit.
The
four
departments,
which
are
being
assembled
with
the
help
of
five
Diaspora
technical
advisers
selected
and
contracted
through
the
ICDSEA
program
(funded
by
the
EU
and
UNICEF),
will
carry
out
the
following
key
MoEHS
functions:
Policy
and
Planning,
including
Education
Management
Information
System
(EMIS);
Human
Resource
Management
and
Organizational
Development;
Standards-based
Quality
Assurance,
including
Examinations
and
Inspection/Supervision;
Financial
Management
and
Planning;
and,
Gender
Equity.
48. All
five
new
service
production
(See
Table
11
below)
and
oversight
entities
have
begun
to
implement
plans
of
action
approved
by
the
new
Minister
and
her
Director
General.
Attached
to
each
division
are
two
national
trainees
selected
from
qualified
local
university
graduates
(most
with
at
least
two
years
teaching
experience).
Table
11:
Summary
of
Service
Production
Functions
Functions
Description
Policy,
Planning
and
Setting
up
and
training
staff
to
run
EMIS,
which
will
be
used
to
collect
and
process
Statistics
data
as
a
base
for
evidence-based
policy
making;
Drafting
policy
documents
and
coordinating
development
of
the
Education
Sector
Plan
2012-2016;
Advising
the
Minster
on
aspects
of
the
Education
Act
(pending
enactment);
Reviewing
donor-created
documents
of
significance
to
MoEHS
planning
and
implementation
process.
Human
Resources
and
Creating
a
viable
Human
Resources
policy;
Staff
Development
Necessary
rules
and
guidelines
to
improve
MoEHS
staff
performance,
discipline,
recruitment
protocols,
and
staff
training
requirements;
31
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Final
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Table
11:
Summary
of
Service
Production
Functions
49. Policy
and
Planning
Department:
Work
carried
out
in
this
department
includes
setting
up
and
training
staff
to
run
a
working
EMIS,
which
will
be
used
to
collect
and
process
data
as
a
base
for
evidence-based
policy
making.
The
EMIS
in
Somaliland
is
partially
funded
and
supported
by
UNICEF,
the
NRC
and
the
EU.
The
Policy
and
Planning
directorate
is
responsible
for
drafting
policy
documents,
advising
the
minster
on
aspects
of
the
Education
Act
(pending
enactment)
and
reviewing
donor
created
documents
of
significance
to
MoEHS
planning
and
implementation
process.
50. The
Department
of
Human
Resources
and
Staff
Development:
Once
established,
this
department
will
be
responsible
for
creating
a
viable
HR
policy
and
the
necessary
rules
and
guidelines
to
improve
MoEHS
staff
performance,
discipline,
recruitment
protocols,
and
staff
training
requirements.
Two
trainees
have
been
allocated
to
the
Diaspora
Adviser,
who
is
currently
responsible
for
activating
this
important
aspect
of
MoEHS
administrative
services.
The
incumbent
Minister
regards
this
aspect
of
the
MoEHS
service
production
as
top
priority,
given
the
need
to
re-allocate
existing
staff
to
new
positions
and
to
attract
new
recruits.
32
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Final
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Figure
7:
Final
Structure
of
HR
Department,
MoEHS,
Somaliland
51. The
Gender
Unit
(GU):
Established
within
the
MoE
in
2007,
the
GU
has
the
key
function
of
raising
awareness
of
lack
of
access
and
participation
in
education
for
girls,
and
to
promote
gender
mainstreaming
within
the
MoEHS.
In
the
last
four
years
the
unit
has
received
financial
support
from
INGO
agencies
such
as
AET
and
UNICEF
to
carry
out
its
functions.
As
Part
of
the
ICDSEA
program,
a
situational
analysis
of
the
GU
has
been
carried
out.
The
Gender
SITAN
took
two
months
to
complete,
and
reviewed
key
policy
documents,
assessed
the
capacity
of
the
unit,
laid
out
critical
findings
of
the
analysis,
and
set
out
recommendations
and
strategic
plans
of
action
necessary
to
improve
the
effectiveness
of
the
GU.
To
carry
out
a
comprehensive
assessment
of
the
GU
all
staff
members
of
the
unit
were
interviewed
and
completed
questionnaires
regarding
their
roles,
competencies,
and
overall
assessment
of
the
units
needs.
Significant
progress
has
already
been
made
toward
the
implementation
of
the
units
first
action
plan.
UNICEF
has
also
supported
the
Gender
Unit
to
recruit
and
train
regional
gender
focal
points
for
each
region
in
Somaliland.
52. Since
the
installation
of
the
current
Minister,
gender
is
being
viewed
as
an
important
crosscutting
element
affecting
the
overall
effectiveness
of
the
MoEHS.
Major
partner
agencies
and
donors
such
as
the
EU
and
UNICEF
provided
data
and
resources
to
better
assess
the
impact
of
gender
on
the
achievement
of
Education
For
All
(EFA)
and
MDG
educational
goals
in
Somaliland.
The
proposed
structure
for
the
GU
is
provided
in
Figure
8
below.
33
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Final
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Figure
8:
Draft
Structure
of
Gender
Unit,
MoEHS,
Somaliland
53. The
Department
of
Quality
Assurance
and
Standards:
This
department
is
responsible
for
oversight
of
curriculum
development,
school
supervision
and
inspection,
as
well
as
for
the
general
oversight
of
standards
in
both
the
primary
and
secondary
sub-sectors.
Further
re-organization
will
be
needed
to
achieve
a
level
of
efficiency
needed
to
make
this
division
more
effective.
An
experienced,
but
aging
cadre
of
senior
staff,
and
a
shortage
of
qualified
and
trained
staff
able
to
replace
them,
are
major
obstacles.
Paralleled
to
the
Quality
Assurance
directorate,
there
is
a
MoEHS
Examination
Section
and
Printing
Press,
which
are
responsible
for
printing
numerous
internal
documents
such
as
examination
papers,
graduation
certificates,
staff
guidelines,
textbooks,
Ministerial
directives
and
policy
papers.
The
Office
of
the
Chief
Inspector
have
revealed
that
while
each
team
member
(nine
inspectors)
has
a
designated
geographical
area
of
responsibility
and
an
annual
work
plan,
none
are
able
to
perform
their
responsibilities
effectively
due
to
lack
of
transportation,
allocation
of
per
diems,
or
travel
incentives
as
was
the
case
in
the
past.
As
a
result,
school
visits
in
remote
destinations
are
rare,
with
the
focus
being
on
schools
in
the
Hargeisa
area,
or
within
easy
reach
from
the
city.
The
roles
of
the
DEOs
in
quality
assurance
and
standards
needs
further
development,
both
because
not
all
DEO
offices
are
functional
and
because
oversight
functions
not
only
require
standards
to
be
put
in
place,
but
also
fiscal
resources
made
available
for
routine
monitoring.
34
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Final
Report
Figure
9:
Proposed
Structure
of
Department
of
Quality
Assurance
and
Standards,
MoEHS,
Somaliland
54. The
Department
of
Finances
and
Administration:
This
department
is
still
being
developed
given
the
recent
appointment
of
the
Director
of
Finances.
With
the
help
of
a
Diaspora
Technical
Advisor
recruited
through
ICDSEA,
a
vigorous
re-organization
of
the
department
has
commenced.
Two
trainees
with
financial
training
have
been
recruited,
to
introduce
new
accounting
and
financial
management
systems
and
to
train
department
staff.
An
upgrading
and
modernization
of
the
MoEHS
archives
and
warehouse
and
procurement
systems
is
also
an
urgent
priority.
None
of
these
are
online
procedures
at
present.
Figure
10:
Proposed
Structure
of
Department
of
Finance
and
Administration,
MoEHS,
Somaliland
35
Study
on
Functional
Assignments
SOMALILAND
Final
Report
3.2.4
SERVICE
DELIVERY
PROCEDURES
AT
REGIONAL,
DISTRICT
AND
COMMUNITY
LEVELS
55. The
education
service
delivery
model
in
Somaliland
is
still
very
much
a
work
in
progress,
with
functional
restructuring
/
reorganization
of
the
Ministry
ongoing.
Assigning
functional
assignments
when
the
functional
structure
is
changing
is
complex;
but
also
an
opportunity.
As
a
result,
a
suggested
MoEHS
service
delivery
diagram
is
provided
in
Figure
11
below,
yet
remains
to
be
finalized
by
the
Ministry.
Following
the
changes
within
the
Somaliland
government
following
the
2011
elections,
an
ambitious
reform
agenda
is
proposed
to
address
the
need
to
transfer
authority
and
action
away
from
the
central
ministry
and
towards
regional
and
district
offices,
where
the
locus
of
ministry
services
should
be.
The
diagram
below
emphasizes
the
need
to
restore
the
role
of
District
Councils
(intended
under
the
Constitution,
re-emphasized
in
the
National
Education
Act,
and
yet
to
be
passed
by
Parliament).
The
Minster
further
intends
to
give
greater
responsibility
to
the
Community
Education
Committees
(CASs
are
a
critical
part
of
the
evolving
service
delivery
model),
which
in
many
districts
have
become
merely
nominal
entities
and
need
to
be
empowered
to
take
on
a
stronger
role
in
the
maintenance
and
improvement
of
schools.
The
proposed
mandates
of
the
District
Councils
in
relation
to
service
delivery
are
prescribed
under
the
decentralization
law,
and
have
not
(apparently)
been
defined
otherwise.
Figure
11:
Proposed
MoEHS,
Somaliland,
Service
Delivery
Structure
36
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Table
12:
Findings
from
Hargeisa
During
the
Primary
Schools
CEC
Focus
Group
meeting
held
in
Hargeisa,
parents
drew
attention
to
the
recent
MoEHS
policy
directive,
which
declared
free
education
for
primary-age
children
in
Somaliland.
Free
Education
for
All
CECs
were
instructed
to
stop
raising
funds
for
school
maintenance,
as
this
responsibility
had
been
transferred
to
the
government.
However,
information
gathered
from
the
Focus
Group
discussion
and
other
sources
indicate
that
the
government
has
not
yet
budgeted
for
such
funding.
Furthermore,
while
welcoming
the
MoEHS
decision
to
provide
free
primary
education
for
all,
concerns
have
been
expressed
that
the
small
amount
released
by
the
government
for
support
to
local
schools
would
be
insufficient.
A
reduction
in
parental
contributions
is
likely
to
further
compound
the
hardship
on
schools,
some
of
which
are
already
overcrowded,
poorly
maintained
and
lacking
in
basic
essentials.
Concerns
regarding
the
future
of
primary
education
raised
in
Gabiley
are
again
indicative
of
concerns
across
Somaliland.
MoEHS
Regional
Office
in
Gabiley
has
further
highlighted
decentralization
of
education
services
as
Decentralization
another
pressing
issue
in
the
sector.
Inadequate
premises
in
terms
of
size,
equipment
(including
lack
of
of
Education
Services
telephones
and
computers)
and
transportation
means
(the
remaining
and
only
functioning
vehicle
is
used
sparingly
because
due
to
lack
of
gasoline
allowance)
limits
the
operational
capacity
of
the
REO.
For
instance,
regional
school
visits
are
limited
due
to
lack
of
transportation,
per
diem
or
travel
incentives
for
inspectors
and
supervisory
staff.
It
has
been
suggested
by
the
MoEHS
Director
of
Panning
in
Hargeisa
that
only
4
out
of
the
6
REOs
are
operative,
due
to
insufficient
basic
services
and/or
qualified
staff.
3.2.5
BUDGET:
EXTERNAL
AND
INTERNAL
SOURCES
OF
FUNDING
AND
ORIGIN
56. The
Somaliland
MoEHS
budget
and
financial
management
information
shared
below
was
provided
by
the
Finance
Department
of
the
MoEHS,
through
the
incumbent
Financial
Management
Adviser
under
the
EU
supported
ICDSEA
program.
The
comparative
data
for
the
2009-2011
integrated
national
education
budgets
was
obtained
from
the
Ministry
of
Finance
showing
plans
for
a
considerable
increase
in
sector
spending.
To
put
this
in
focus,
Somaliland
is
planning
a
budget
of
US$12
million
for
education
in
2012.
57. The
Consolidated
budget
for
MoEHS
for
Financial
Year
2012
is
estimated
at
US$12,676,507,
though
as
parliament
has
yet
to
pass
the
appropriations
bill,
this
remains
a
needs
based
planning
figure.
In
2009
actual
spending
in
education
was
US$2,235,855
in
2010
it
was
US$2,411,281
and
in
2011
it
increased
almost
three
fold
to
US$6,189,263.
There
is
no
doubt
that
Government
is
committed
to
stridently
supporting
the
expansion
of
education
services.
A
significant
percentage
of
the
proposed
2012
budget
is
projected
to
cover
personnel
costs
at
67.38%
(an
improvement
from
the
current
budget
allocation
of
90%
for
personnel
costs)
and
school
expenses
at
23.76%.
The
school
expenses
included
in
the
budget
are
the
bare
minimum
with
an
allocation
of
US$250
per
month
per
school
to
meet
office
stationary
and
costs
for
routine
maintenance
(no
budgetary
allocation
at
present).
Budget
for
water
is
especially
high
due
to
the
fact
that
water
for
feeding
centers
is
delivered
in
tankers
that
are
highly
priced
as
compared
to
other
sources
of
water.
Capital
costs
are
generally
investments
in
office
equipment,
computers
and
printers,
which
are
necessary
for
efficient
delivery
of
services.
58. Out
of
the
US$8,541,590
budgeted
for
personnel
costs,
US$4,884,590
is
provided
by
the
government.
In
2011,
another
US$919,200
was
paid
for
by
DANIDA
through
SC/UK.
Therefore,
actual
personnel
costs
are
US$5,803,790,
which
is
68%
of
total
personnel
costs,
leaving
a
balance
of
32%
for
unpaid
staff,
which
totals
2,969
from
various
categories
of
staff.
The
recurrent
to
capital
and
O&M
splits
are
fairly
standard
for
the
sector.
Even
though
this
has
yet
to
be
passed
by
parliament,
and
some
adjustments
to
the
downside
are
likely,
the
levels
of
financing
for
the
sector
begin
to
make
universal
access
to
primary
education
a
fundable
reality.
37
Study
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SOMALILAND
Final
Report
Table
13:
MoEHS
Somaliland
Consolidated
Budget
Profiles
2009-2011
(SL.SH)
38
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SOMALILAND
Final
Report
SUB
TOTAL
644,688,000
1,084,896,000
1,023,141,486
1.4.0
Fixed
asset
service
costs
-
1.4.1
Office
and
houses
equipment
-
1.4.2
Vehicle
and
machines
-
1.4.3
Water
and
electricity
equipment
2,234,400
2,234,400
1,564,080
1.4.4
Communication
equipment
3,724,000
3,000,000
2,100,000
SUB
TOTAL
5,958,400
5,234,400
3,664,080
1.4.6
Maintenance
and
reconstruction
of
buildings
1.4.7
Maintenance
of
vehicle
and
machines
44,688,000
126,000,000
88,200,000
1.4.8
Maintenance
of
offices,
houses
and
stores
3,724,000
3,724,000
2,606,800
1.4.9
Maintenance
of
schools
37,240,000
3,240,000
80.500,000
1.4.10
Maintenance
of
school
furniture
37,240,000
37,240,000
26,068,000
SUB
TOTAL
122,892,000
204,204,000
197,374,800
2.6.3.0
Another
state
departments
assistance
costs
2.6.3.1
Universities
and
higher
education
department
support
costs
-
1,050,000,000
2,100,000,000
SUB
TOTAL
-
1,050,000,000
35,569,692,024
GRAND
TOTAL
12,849,460,173
13,583,732,140
35,569,692,024
39
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Table
14:
Forecast
Consolidated
MoEHS
Budget
2012
40
Study
on
Functional
Assignments
SOMALILAND
Final
Report
59. MoEHS
Financial
Management
Systems:
MoEHS
maintains
a
single
entry-based
manual
accounting
system
with
oversight
and
control
residing
with
the
office
of
the
Somaliland
Accountant
General.
The
accounting
system
is
Vote
Book-based
for
the
monitoring
of
payments
and
expenditures.
This
is
supported
by
a
warrant
system
that
allows
for
cash
transfers.
Computerization
of
the
Finance
Department
was
finalized
at
the
end
of
2011
through
ICDSEA
with
all
staff
trained.
Further
efforts
to
improve
and
sustain
a
fully
automated
will
need
to
be
supported
as
government
financing
of
education
makes
MoEHS
one
of
the
largest
spending
units.
In
2011
budget
allocations
to
the
MoEHS
are
mainly
staff
and
teacher
salaries,
and
other
emoluments,
which
make
up
about
90%
of
the
budget.
However,
as
budget
allocations
increase,
the
proportion
expended
on
salaries
and
other
expenditures
is
expected
to
decline
and
public
procurement
of
capital
investments
is
expected
to
increase
as
grants
to
schools
to
cover
day-to-day
operational
costs.
The
impact
of
central
government
covering
school
overhead
costs
even
if
its
only
US$250
a
monthwill
have
a
large
impact
of
loyalty
and
conformity.
60. Presently,
MoEHS
does
not
have
its
own
revenue
source,
and
depends
on
appropriations
from
the
government
through
the
MoF.
Typically,
support
from
development
partners
comes
in
the
form
of
project
implementation
funding
(largely
capital
investments
and
technical
assistance).
While
these
development
partner
initiatives
do
address
critical
needs
in
the
system,
they
are
essentially
pre-
packaged
interventions
linked
to
specific
sources
of
funding.
The
Ministry
hopes
that
development
partners
will
be
willing
to
channel
funds
through
the
Ministry
when
there
is
a
credible
and
reliable
financial
management
system
in
place
to
assure
the
efficient
and
transparent
use
of
resources.
Developing
an
automated
system
would
however
be
critical
to
laying
the
ground
for
the
future,
and
vital
to
timely
reporting
to
aid
policy
development.
61. The
need
to
implement
an
automated
system
has
now
become
more
urgent
because
with
the
introduction
of
free
primary
education,
there
will
be
a
need
for
the
Ministry
to
handle
external
funds
to
bridge
the
resulting
financial
gap.
Preparatory
work
has
already
begun
in
the
creation
of
an
Education
Trust
Fund
(which
could
be
used
to
pilot
service
delivery
models
and
functional
assignments)
that
is
expected
to
attract
funding
from
government,
private
sector,
the
Diaspora
community
and
other
donor
sources
and
so
trust
funds
are
likely
to
play
a
key
role
in
financing
the
sector
for
some
time
to
come.
Key
elements
of
the
financial
management
system
include:
Government
Appropriations:
The
Government
continues
to
allocate
more
funds
to
the
Education
sector
and
has
increased
the
allocation
to
US$6,189,263
in
2011.
The
Ministry
withdraws
the
funds
from
the
Exchequer
through
the
use
of
warrants.
All
receipts
by
MoEHS
are
recorded
in
the
vote
book
on
a
single
entry
basis.
Largely,
the
Ministry
receives
no
physical
cash;
rather
the
vote
book
is
a
documentation
of
movement
of
cash
from
MoF
for
the
purpose
of
paying
emoluments
and
suppliers
of
goods;
External
Funding:
Past
studies
have
observed
that
there
are
about
19
international
institutions
that
are
supporting
the
education
sector
in
Somaliland.
In
addition,
there
are
another
11
local
NGOs
that
are
working
in
the
sector.
Most
of
the
development
partners
are
implementing
projects
directly
at
the
grassroots
and
are
not
channeling
any
money
through
the
Ministry.
However,
UNICEF
and
SC-
UK
are
providing
support
to
the
Ministrythough
this
support
is
not
on-budget.
Concerns
over
fiduciary
management
standards
and
lack
of
automated
systems
can
only
be
resolved
through
a
committed
to
core
ICT
developments
in
the
Ministry,
which
link
across
the
three
tiers
of
state;
and,
Payroll:
The
current
MoEHS
budgetary
allocation
is
largely
funding
salary
costs
at
approximately
90%
of
the
budget
leaving
very
little
for
operating
costs
both
at
the
Central
and
Regional
offices.
The
payroll
for
staff
is
prepared
by
the
accountants
at
regional
and
central
office
on
A3
paper
detailing
the
name
of
the
person,
gross
salary,
tax,
other
deductions
and
net
salary.
The
payroll
41
Study
on
Functional
Assignments
SOMALILAND
Final
Report
report
is
then
utilized
to
prepare
a
warrant
to
request
funds.
Once
the
warrant
is
received
funds
are
released
to
the
Regional
Education
Officers
(REOs)
and
the
Director
of
Administration
and
Finance
(with
regard
to
the
central
office).
Staff
members
sign
off
against
their
names
on
receipt
of
the
salary
and
the
warrants
are
entered
in
the
vote
book.
SC-UK,
which
pays
some
of
the
teachers
and
deposits
salaries
directly
to
their
bank
accounts
eliminating
the
need
to
handle
large
sums
of
money,
and
thereby
minimizing
incidences
of
fraud
and
misappropriation.
Efforts
to
introduce
such
a
system
for
other
Ministry
staff
are
yet
to
be
explored;
and,
Expenditure
and
Assets
Systems:
Currently
the
only
major
duties
of
the
Finance
Department
are
preparation
of
vouchers,
expenditure
and
wages,
filing
documents,
and
entering
the
warrant
requests
into
the
vote
book.
The
department
does
not
maintain
any
assets
register
and
neither
is
it
able
to
quantify
the
Ministry
liabilities
at
any
given
time.
3.2.6
STAFFING
DETAILS
AND
TECHNICAL
SKILLS
NEEDS
62. Informant
interviews
have
helped
identify
key
staffing
data,
as
well
as
capacity
needs
and
priorities.
The
comprehensive
National
Development
Plan
lists
and
costs
national
education
priorities,
which
have
been
summarized
in
the
matrix
below
(see
Table
15).
It
should
be
noted
that
this
is
a
needs
based
assessment
and
not
the
formal
appropriations
arrangement.
Moreover,
it
highlights
the
need
for
donors
to
increase
support
around
the
NDP
in
return
for
strengthening
education
sector
governance.
63. The
Ministry
faces
a
number
of
considerable
constraints,
which
impede
the
successful
execution
of
both
production
and
provision
functions.
These
include
(i)
poor
quality
of
educational
provision;
(ii)
an
unresponsive
school
curriculum;
(iii)
absence
of
standards
and
controls;
(iv)
inadequate
management
and
planning
capacity;
(v)
a
weak
financial
base;
and
(vi)
the
existence
of
numerous
and
poorly
coordinated
educational
provisions,
which
all
hinder
the
functionality
and
relevance
of
service
delivery
and
impede
the
effective
attainment
of
national
education
goals
and
objectives.
During
the
teams
visit
the
following
key
deficiencies
and
institutional
bottlenecks
were
observed:
Currently,
limited
information
is
available
about
individual
MoEHS
staff
in
terms
of
contracts,
service
records,
qualifications,
experience
and
training
needs.
It
is,
therefore,
difficult
to
set
apart
non-employees
from
employees;
The
MoEHS
organizational
structure
requires
clearer
definition
and
restructuring
into
more
manageable
directorates
and
functional
departments;
There
is
an
urgent
need
to
train
MoEHS
staff
to
carry
out
their
daily
management
and
administrative
functions
more
efficiently
and
effectively.
Addressing
motivational
factors
would
be
critical
in
this
regard;
Some
MoEHS
staff
are
unable
to
retire
due
to
lack
of
pension
provisions,
thus
inhibiting
the
development
of
a
young
and
skilled
staff;
For
reasons
related
to
lack
of
communications
and/or
motivation,
implementation
of
policies
that
have
been
adopted
to
improve
the
ministrys
ability
to
deliver
services
to
beneficiariesespecially
in
remote
rural
and
nomadic
communitiesis
slow;
The
MoEHSs
inability
to
compensate
staff
and
teachers
is
a
serious
impediment
toward
the
delivery
of
timely
and
effective
services.
This
is
especially
so
at
the
regional,
district
and
school
levels;
and
Lack
of
work
ethic
and
discipline
at
the
ministerial
level,
weak
capacity
building,
poor
levels
of
education
amongst
some
staff,
are
just
a
few
key
concerns
that
can
not
be
easily
remedied
without
significant
capacity
building.
3.2.7
SHORT
AND
LONG
TERM
CAPACITY
BUILDING
NEEDS
64. Short
and
long
term
capacity
building
needs
of
the
MoEHS,
Somaliland,
include:
42
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Final
Report
Building
the
overall
capacity
of
MoEHS
especially
in
the
management
and
human
resources
development
areas,
many
areas
of
which
are
already
being
supported
by
ICDSEA;
Develop
professional
procedures
for
the
in-service
training
and
the
hiring
of
more
teachers;
Provide
resources
and
support
for
the
building
of
new
schools,
and
expand
existing
ones;
Improve
and
expand
Special
Needs
Education;
Develop
well-managed
and
supervised
mobile
and
boarding
school
facilities
for
pastoralist
groups;
Build
and
man
a
professional
curriculum
development
center;
Improve
language,
science
and
IT
teaching
and
learning
in
primary
and
secondary
schools;
Improving
access,
quality,
and
gender
equity
in
primary
and
secondary
education;
Improve
access
to
secondary
and
higher
education
through
a
more
effective
investment
in
appropriate
infrastructure;
Enhance
the
relevance
and
quality
of
education
by
developing
improved
curricula,
better
teaching
and
quality
assurance
procedures
at
the
school
level;
Raise
the
standard
of
higher
education
and
introduce
an
accreditation
system,
which
establishes
minimum
international
standards;
Expand
vocational
training
for
youth
and
adults
through
both
public
and
private
sector
participation;
Initiate
programs
that
target
adult
literacy
and
provide
non-formal
education
and
skills
training
for
out-of-school
children,
especially
nomadic
children;
and,
Upgrade
the
MoEHSs
management
capacity
by
well-targeted
in-service
training
and
better
recruitment
and
promotion
procedures.
65. Key
longer-term
training
and
capacity
building
priority
is
the
provision
of
professional
training
for
a
still
to
be
recruited
young
staff.
Also
crucial,
is
the
introduction
of
incentives
to
encourage
this
young
staff
to
remain
in
the
Ministry.
Particular
efforts
should
be
made
to:
Identify
and
recruit
from
among
the
best
Somaliland
graduates,
especially
those
willing
to
travel
abroad
to
obtain
degrees,
which
will
enable
them
to
fill
curriculum
development
functions.
Whilst
training
staff
aboard
would
require
significant
funding,
this
is
probably
the
only
way
one
can
bring
national
counterparts
quickly
up
to
the
international
technical
standards
required.
Beneficiaries
should
be
required
to
sign
agreements
that
would
guarantee
that
they
return
to
the
Ministry
to
carry
out
their
functions
and
not
use
their
newly
acquired
degrees
to
leave
the
country
for
work
elsewhere;
and,
Bond
those
selected
for
scholarships
abroad
to
continue
working
for
the
MoEHS
for
at
least
3-5
years
upon
their
return.
66. Table
15
below
provides
an
indicative
summary
of
MoEHS
stated
capacity
development
priorities
and
costs
over
the
medium
term.
These
almost
exclusively
focus
on
production
and
not
provision
functions,
but
support
for
improving
sector
provision
in
policy,
planning,
budgeting
and
regulatory
oversight
and
standards
enforcement
is
critical;
and
will
need
to
be
a
main
focus
on
external
support.
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Table
15:
Indicative
Primary
and
Secondary
Education
Sector
Budget
and
Implementation
Matrix
(NDP)
To
review
the
curriculum
of
both
primary
and
secondary
education
and
build
a
Curriculum
Development
Center.
To
construct
new
schools,
extend
and
rehabilitate
of
the
existing.
To
construct
two
Teachers
Training
Institutes
(one
in
the
West
and
one
in
the
East).
To
improve
and
expend
girls
and
womens
education
to
the
district
level.
To
improve
and
expand
Special
Need
Education
and
education
for
pastoralist
groups.
To
construct
additional
offices
at
the
central
and
regional
and
district
levels
of
the
MoEHS.
No
Programs
Objectives
Project
output/
Source
of
Funds
Implementer
Required
Budget
(US$
Millions)
outcomes
2012
2013
2014
2015
2016
Total
1
Capacity
building
for
To
provide
training,
Training
provided,
EU
MoEHS
0.58
0.58
0.58
-
-
-
Ministry
of
Education
furniture
and
office
equipment,
and
Higher
Studies
equipment
and
server
furniture
and
server
(MoEHS).
for
IT
development.
supplied.
2
Construction
of
800
classes
to
be
Completion
of
the
Donors
and
MoEHS
1.2
-
-
-
-
1.73
additional
classes
constructed
within
the
Construct
of
those
Somaliland
within
the
existing
existing
schools,
to
classes.
Government
schools
is
a
top
priority
prepare
learning
space
and
immediate
need,
for
the
great
increase
to
answer
Free
Primary
of
the
enrolment,
Education
policy
expected
in
August
announced
by
the
2011.
Government.
3
Training
the
new
800
To
Improve
their
Improved
them
Donors
and
MoEHS
0.2
0.2
0.2
0.2
0.2
1.2
teachers,
we
were
academic
and
academically
and
Somaliland
expecting
to
join
Professional
skills.
professionally.
Government
teaching
staff
on
August
2011.
4
Construction
of
100
To
give
learning
space
100
New
primary
Donors
and
MoEHS
2.00
2.00
2.00
2.00
2.00
10.00
new
primary
schools.
for
incoming
school
schools
Somaliland
44
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children.
constructed.
Government
5
Construction
of
50
To
give
space
to
50
new
schools
1.00
1.00
1.00
1.00
1.00
5.00
secondary
schools.
students
from
primary
constructed.
schools.
6
Construction
of
10
To
give
vocational
skills
10
vocational
0.8
0.8
0.8
0.8
0.8
4.00
technical
schools.
to
secondary
schools.
schools.
7
Construction
of
15
new
To
expand
and
improve
15
new
family
life
Donors
and
MoEHS
0.06
0.06
0.06
0.06
0.06
0.30
family
life
education
womens
Education.
education
centers
Somaliland
centers.
constructed.
Government
8
Construction
of
5
new
To
improve
and
expand
5
new
special
need
Donors
and
MoEHS
0.04
0.04
0.04
-
-
0.12
centers
for
Special
special
need
education.
education
centers
Somaliland
Need
Education.
constructed.
Government
9
Construction
of
10
To
build
boarding
10
boarding
Donors
and
MoEHS
0.5
0.5
0.5
0.5
0.5
2.50
boarding
schools
in
schools
in
nomadic
and
intermediate
and
Somaliland
nomadic
and
remote
remote
coastal
areas
to
secondary
schools
Government
coastal
areas.
allow
children
constructed
in
complete
their
nomadic
and
education
and
reduce
remote
coastal
dropouts.
areas.
10
Construction
of
12
To
provide
enough
12
administrative
Donors
and
MoEHS
0.05
0.05
-
-
-
0.10
offices
within
the
space
for
the
offices
constructed
Somaliland
MoE/HE
departments.
within
the
MoE/HE.
Government
11
Construction
of
5
To
strengthen
the
15
REOs
and
DEOs
Donors
and
MoEHS
0.08
0.08
0.080
0.08
0.08
0.40
Regional
Education
regions
education
built
or
refurbished.
Somaliland
Offices
(REOs.)
Offices
administration.
Government
and
10
District
Education
Offices
(DEOs)
Offices.
12
Construction
of
To
expand
the
National
The
National
Donors
and
MoEHS
0.05
0.05
-
-
-
0.10
curriculum
Curriculum
center.
Curriculum
center
Somaliland
Development
Center.
expanded.
Government
Total
Primary
and
Secondary
Education
Development
Budget
6.56
5.36
5.26
4.64
4.64
26.46
Source:
NDP,
2012-2016
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3.2.8
KEY
LEGAL
AND
NORMATIVE
INSTRUMENTS
AND
THEIR
SIGNIFICANCE
FOR
SERVICE
DELIVERY
67. The
Somali
constitution,
which
was
ratified
and
enacted
in
2001,
was
comprehensive,
visionary
and
provided
the
basis
for
all
the
subsequent
educational,
gender,
human
rights
and
local
government
legislation
listed
in
this
section
of
the
report.
Table
16
provides
the
relevant
articles,
which
outline
the
basis
for
much
of
the
educational
policies,
which
followed,
culminating
with
the
most
recent
Comprehensive
National
Development
Plan
(2012-2016),
which
was
shared
with
the
team
by
our
respective
ministries
just
as
we
arrived
in
Somaliland.
Box
1:
District
Capacity
Assessment
Sample
Education
Findings
The
district
capacity
assessments
conducted
by
JPLG
provide
a
rich
understanding
of
the
current
functional
assignments
of
the
district
administration
offices
in
practice.
This
box
merely
provides
a
sense
of
current
administrative
provision
or
production
support
roles,
by
district,
which
have
different
grade
and
fiscal
potential,
which
doubtless
reflect
their
capacities
to
financed
production
and
provision
assignments:
Hargeisa
District
(Grade
A
District):
According
to
the
information
given
to
the
district
team,
the
administration
has
323
active
staff
members
in
13
departments;
there
is
no
department
of
Education.
Although
the
Local
Council
has
full
powers
to
perform
the
promotion
and
care
of
social
welfare,
such
as
education,
they
do
not
work
on
basic
education
at
all.
Odweyne
District
(Grade
B
District):
The
district
administration
has
19
active
staff
members
in
three
departments:
Land,
Finance
and
Administration,
and
Revenue,
as
well
as
directly
under
the
Executive
Secretary.
For
education,
they
do
not
take
a
lead
role
in
providing
this,
as
the
MoEHS
carries
it
out.
They
do
provide
support
to
the
schools
on
an
ad
hoc
basis
with
electricity
and
sanitation.
The
MoEHS
is
represented
in
Odweyne
and
meets
with
the
district
authorities
weekly,
but
they
usually
only
communicate
on
security
issues.
The
assessment
also
states
that
there
are
some
areas
where
there
is
no
expertise
within
the
district
such
as
town
planning,
engineering,
health,
and
education;
all
of
these
are
identified
in
the
department
breakdown
below.
Berbera
District
(Grade
A
District):
The
district
administration
has
275
active
staff
members
in
11
departments:
Transport,
Land,
Social
Affairs,
Audit,
Finance
and
Administration,
Revenue,
Personnel,
Health,
Planning,
ID,
and
Central
Archive
as
well
as
the
Executive
Secretary,
thus
making
the
total
number
of
offices
analyzed
12.
The
local
government
is
responsible
for
the
promotion
and
care
of
the
social
welfare,
such
as
education,
health,
water,
electricity,
sanitation,
etc.
The
social
affairs
department
is
responsible
for
define
the
responsibilities
of
the
municipality
on
education
and
ensure
that
there
is
the
necessary
expertise
available.
The
District
Authorities
contribute
to
the
salaries
for
teachers
for
secondary
schools
and
through
an
arrangement
with
a
private
electricity
company,
provide
free
electricity
to
the
district
schools.
Burao
District
(Grade
A
District):
The
district
administration
has
203
active
staff
members
in
five
departments:
Public
Works,
Social
Affairs,
Internal
Audit,
Finance
and
Administration,
and
Revenue,
as
well
as
directly
under
the
Executive
Secretary,
thus
making
the
total
number
of
offices
analyzed
six.
The
municipality
provides
land
for
any
education
facilities
needed,
and
also
pays
for
three
orphans
to
go
to
school
on
a
regular
basis
and
another
seven
on
an
ad
hoc
basis.
In
addition
5%
of
the
budget
of
the
municipality
goes
to
the
university.
Sources:
JPLG
Supported
District
Capacity
Assessments
(2011)
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Table
16:
Somaliland
Legal/Normative
Instruments
and
MoEHS
Service
Delivery
48
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Final
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The
Proposed
New
The
main
aim
of
the
proposed
revenue
mobilization
Somalilands
average
income
from
this
source
was
only
2.6%,
during
the
last
decade.
If
National
Revenue
plan
is
to
improve
tax
administration
and
collection
so
public
services
like
education
health
and
water
are
to
be
adequately
supported
over
the
Mobilization
Plan,
2010
as
to
ultimately
improve
the
ratio
of
tax
revenue
to
long
term,
simplifying
and
lowering
current
tax
rates
and
enforcing
existing
laws
must
GDP
from
the
current
5%
to
13%
in
just
three
years
by
immediately
address
weaknesses
in
domestic
indirect
taxation
and
income
taxation.
at
the
same
time
reducing
tax
rates.
The
revenue
plan
assumes
that
tax
rates
be
harmonized
and
reduced
to
encourage
compliance,
and
that
the
tax
base
be
broadened
by
limiting
exemptions
and
enforcing
existing
laws.
The
revenue
administration
is
supposed
to
achieve
the
stated
objective
for
the
first
three
years
of
implementation.
The
Somaliland
The
NDP
addresses
structural
and
institutional
Since
1991,
the
country
has
taken
great
strides
in
the
development
of
education.
Yet
National
Development
challenges
in
order
to
achieve
the
public,
social
and
literacy
and
primary
enrolment
rates
are
very
low.
The
plan
aims
at
expanding
and
raising
Plan
(NDP)
2012-2016
economic
transformations
required
to
attain
the
the
quality
of
education
by:
(i)
building
the
institutional
capacity
of
the
Ministry,
(ii)
(Revised
and
approved
prosperity
we
aspire
to.
The
NDP
aims
at
creating
an
developing
appropriate
education
policies,
(iii)
initiating
teacher
training
programs,
(iv)
in
November,
2011)
enabling
environment
that
is
conducive
to
expanding
capacity
by
building
more
classrooms
and
schools,
(v)
building
boarding
schools
employment
generation
especially
among
the
youth,
in
rural
areas,
(vi)
increasing
primary
and
secondary
school
enrolment
rates,
(vii)
revising
human
resource
development,
technological
and
upgrading
school
curriculum,
(viii)
establishing
commission
for
higher
education,
(ix)
advancement,
effective
and
efficient
governance,
Introducing
accreditation
and
quality
control
systems
for
higher
education,
(x)
expanding
increasing
competitiveness
and
rising
income
levels.
womens
education,
(xi)
Increasing
the
number
TVETs,
and
(xii)
providing
policy
guidelines
This
requires
higher
and
sustained
Government
for
privately-run
TVET
centers.
investment
in
infrastructure,
institutional
capacity
building,
legal
and
policy
reforms.
The
development
approach
of
this
NDP
intertwines
economic
growth,
social
development
and
environmental
sustainability.
49
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3.3
MOEHS
ABILITY
TO
DELIVERY
SERVICES
EFFECTIVELY
3.3.1
SERVICE
PROVISION
AT
REGIONAL,
DISTRICT
AND
COMMUNITY
LEVELS
68. The
intensive
assessment
of
Somalilands
MoEHS
service
delivery
systems
lead
to
the
following
observations
with
regards
institutional
capacities,
with
implications
for
the
orderly
decentralization
of
both
production
and
where
logical,
provision
functions.
Clearly,
the
functional
assignments
of
the
existing
system
of
education
need
to
be
better
clearly
defined.
The
2008
policy
framework
matrix
on
decentralization
needs
to
be
revisited
given
that
strengthening
local
government
and
community
council
systems
in
support
of
national
education
goals
is
critical
to
future
gains.
Medium
Term
Fiscal
Policy
on
Education:
According
to
the
draft
MTFF,
the
Government
of
Somaliland
is
committed
to
make
the
primary
education
free
for
all
and
the
MoEHS
had
also
projected
a
need
for
additional
1,500
teachers
that
need
to
be
accounted
for
in
annual
budget
2011
and
costs,
Sl.
Sh.
12.5
billion,
and
additional
500
teachers
per
year
in
2012
and
2013
respectively,
which
will
cost
Sl.
Sh.
6.3
billion,
and
Sl.
Sh.
9.4
billion,
respectively.
Based
on
the
demand
of
the
community
and
investment
in
human
capital
in
achieving
MDG
goals
and
EFA
targets,
the
government
plans
to
hire
an
additional
2500
teachers
between
2011
and
2013,
which
will
cost
around
US$4.7
million
for
the
three
years.
The
number
has
been
requested
by
the
MoEHS
as
part
of
their
activities
to
achieving
universal
primary
enrolment
by
2020;
and
free
primary
education
will
be
provided
by
the
Government
of
the
day
for
our
children
starting
from
fiscal
year
2011.
The
total
number
of
students
exempted
from
payment
of
school
fees
and
the
amount
of
money
involved
should
be
shown
in
the
annual
budget
of
2011.
The
need
to
replace
the
MoEHS
ageing
leadership
corps:
As
noted
above,
the
MoEHS
is
undergoing
a
profound
leadership
and
structural
change
from
within
and
is
not
currently
in
a
position
to
deal
with
the
many
issues
raised
in
this
assessment,
especially
with
respect
to
the
delivery
of
quality
education
services
outside
of
Somalilands
main
urban
centers.
There
is
a
need
to
bring
new
professionals
in
to
the
Ministry,
and
in
certain
cases
find
retirement
options
for
elderly
staff.
At
the
center
of
this
conundrum
is
the
absence
of
a
functioning
pension
scheme
as
an
incentive
to
encourage
long
service
members
of
staff
to
retire.
Options
for
voluntary
separation
packages
could
be
considered,
and
whilst
costly
these
could
pay
for
themselves
in
efficiency
gains
over
the
medium
term.
Sources
of
Funding:
The
lack
of
a
reliable
source
of
funding
continues
to
be
a
major
obstacle
in
providing
effective,
quality
educational
services,
and
the
provision
of
universal
access
to
primary
education;
through
recent
revenue
mobilization
gains
have
gone
a
long
way
to
reduce
the
needs-
realty
gap.
Lack
of
resources
is
especially
so
with
regard
to
less
well-endowed
poorer
rural
and
nomadic
communities
throughout
Somaliland,
which
remain
badly
under-served
by
the
current
system.
Regional
Offices:
At
the
Regional
level,
the
challenge
is
to
put
into
operation
the
many
regional
offices
which
are
now
understaffed
and
under-resourced
in
order
to
insure
an
active
and
effective
administrative
and
supervisory
presence
closer
to
the
locus
of
teaching
and
learning.
The
recruitment
and
training
of
better
qualified
regional
staff,
the
revitalization
and
construction
of
better
equipped
regional
offices,
and
the
provision
of
adequate
transport
and
operational
budgets,
would
help
to
improve
the
MoEHSs
impact
in
all
six
regions.
In
addition,
a
closer
working
relationship
between
REOs
and
the
Regional
and
District
Councils
would
better
integrate
MoEHS
functions
and
interests
with
regional
and
local
community
interests
and
needs.
Within
a
framework
of
limited
resources
make
sure
there
is
no
duplication
in
role
and
clear
functional
assignments
is
vital.
Primary
Education
Free
for
All:
The
recent
decision
to
make
primary
education
free
for
all
children
risks
undermining
the
Community
Education
Committees
and
Village
Councils
willingness
to
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Report
provide
for
their
schools.
Information
gathered
from
informant
interviews
indicates
that
CECS
were
also
requested
by
the
government
to
stop
funding
schools,
and
there
is
a
fear
that
this
move
has
not
been
accompanied
by
increased
availability
of
Government
budget
or
resources
to
fill
the
gap.
Indeed,
the
CEC
is
not
convinced
that
the
Government
of
Somaliland
(GoS)
has
the
budget,
or
resources,
needed
to
support
both
teachers
salaries
and
to
provide
the
other
services
needed
to
keep
primary
schools
functioning.
A
preferred
approach
would
not
be
to
reduce
existing
CEC
financing
but
rather
to
develop
a
cost-sharing
model
between
the
MoEHS
and
CECs.
This
requires
a
clear
assessment
of
what
level
of
financial
support
MoEHS
can
afford
to
provide
on
a
sustainable
basis
to
all
schools,
and
also
whether
an
off-set
arrangement
is
needed
where
schools
are
being
privately
financed
or
managed
by
NGOs.
District
Offices
and
Administration:
As
stated
in
the
NDP,
the
role
of
district
MoEHS
structures
and
District
Councils
and
municipalities
in
education
delivery
have
still
to
be
carefully
considered.
The
NDP
states
that:
decentralization
has
yet
to
take
root
within
the
socio-political
context
of
Somaliland.
Although
some
programs,
including
the
UN
Joint
Program
on
Local
Governance
and
Decentralized
Service
Delivery
(JPLG),
have
invested
a
lot
of
effort
and
time
in
improving
local
governance
decentralization,
they
have
not
entirely
succeeded
due
to
structural
constraints.
A
cogently
delineated
system
in
which
ministries,
departments,
and
Government
agencies
can
collaborate
with
regional
and
district
municipalities
has
yet
to
be
devised.
Community:
There
is
clearly
a
need
to
strengthen
community
based
structures
of
delivery
including
CECsgiven
their
critical
role
in
mobilizing
financial
support,
asserting
bottom-up
accountability
and
expanding
services
into
communities
where
the
government
has
yet
to
delivery
services
effectively.
Critical
here
is
identifying
which
functions
are
best
suited
at
the
community
level,
and
how
these
are
coordinated
with.
69. The
NDP
is
clear
as
to
which
are
the
major
challenges
facing
the
sector
as
a
whole,
and
the
following
list
of
strategic
priorities,
provision
and
production
functions
need
to
be
carefully
considered;
given
their
implications
for
shaping
functional
assignments.
It
is
stated
that
during
the
plan
period
(2012-2016),
the
MoEHS
will:
Upgrade
policies,
rules
and
legal
framework;
Develop
institutional
capacity;
Initiate
teacher
training
college
programs;
Introduce
a
new
school
inspection
program
that
is
holistic,
i.e.
covers
all
aspects
of
school
and
student
achievements;
Design
structured
and
continuous
professional
development
courses
for
practicing
teachers;
Provide
incentives
such
as
feeding
centers
to
increase
access
and
tackle
retention
problems;
Increase
primary
and
secondary
school
enrolment
rates;
Strengthen
the
human
resource
capacity
of
the
TVET
Department
at
MoEHS
Headquarters;
Divide
the
TVET
Department
into
two
units
-
one
for
technical
training
and
the
other
for
vocational
teacher
training,
and
provide
adequate
staff
to
both
units;
Strengthen
Government-owned
TVET
institutions
and
provide
policy
guidelines
for
privately
run
TVET
centers;
Strengthen
the
capacity
of
the
NFE
Department
at
both
the
MoEHS
headquarters
and
the
regional
level;
Integrate
life
skills
and
health
education
into
formal
and
non-formal
education
curriculum;
Initiate
gender-mainstreaming
policies
at
all
levels
of
education
and
training.
This
could
include:
Girls
education
awareness
campaign,
advocacy,
and
legislation
at
Government
level;
Creation
of
an
enabling
learning
environment
in
schools;
51
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Professional
development
courses
for
practicing
teachers
relating
to
the
promotion
of
the
girls
education;
Affirmative
action/scholarships
for
girls;
Recruitments
of
more
female
teachers
and
more
training
programs
for
those
who
are
already
working;
Strengthen
the
oversight
authority
of
the
MoEHS
over
private
schools,
colleges,
and
universities
through
the
exercise
of
its
accreditation
powers;
and,
Strengthen
research
and
development.
70. Proposed
institutional
and
policy
reforms
to
be
undertaken
in
the
course
of
the
NDPcritical
to
this
exerciseare
proposed
to
include:
Transforming
the
management
and
planning
of
education;
Improving
the
quality
and
relevance
of
national
curriculum;
Raising
standards
in
primary
and
secondary
education;
Striking
the
right
balance
between
general
and
vocational
education;
Regulating
private
education;
Establishing
free
primary
education;
Strengthening
non
formal
education;
Ensuring
quality,
relevance
and
access
in
tertiary
education;
and,
Achieving
MDGs.
3.3.2
THE
UN,
INTERNATIONAL
DONORS
AND
NGOS
71. The
following
United
Nations
agencies
play
a
key
role
in
providing
support
to
the
MoEHS
in
Somaliland:
UNICEF:
Teacher
training,
curriculum
development,
textbook
production,
EMIS
training
and
support,
adult
literacy
and
non-formal
education,
teaching
methodology,
institutional
capacity
development,
girls
education,
CEC
training,
provision
of
learning
and
teaching
materials,
school
rehabilitation
and
construction
including
WASH
in
schools,
and
IDP
education;
UNOPS:
Actively
involved
in
some
school
construction,
technical
and
vocational
education
center
development
and
some
MoEHS
facilities
construction;
UNESCO:
Advice
and
support
in
the
writing
and
preparation
of
textbooks;
ILO:
Training
and
capacity
building
at
the
local
government
level;
UNHCR:
Involved
in
providing
social
and
educational
services
to
Internally
Displaced
Persons
(IDPs)
and
other
groups
of
refugees
transiting
through
Somaliland
on
the
way
to
refugee
camps
in
Kenya
and
Ethiopia;
and,
UN-HABITAT:
Contributed
toward
school
reconstruction
and
the
provision
of
water
services
in
some
areas.
72. The
main
multilateral
and
bilateral
donors
providing
financial
and
technical
support
to
education
in
Somaliland
include
USAID
the
EC,
NORAD-Norway,
SIDA-Sweden,
DFID-UK,
DANIDA-Denmark,
and
CIDA-Canada,
the
Arab
Emirates
and
Saudi
Arabia.
The
majority
of
aid
received
from
donors
is
still
channeled
through
international
and
national
non-government
entities
by
way
of
well-defined
short-
term
projects
or
programs.
Efforts
to
increase
on-budget
support
over
the
short-term
are
unlikely
to
be
effective
but
the
ongoing
assessment
of
possible
trust
fund
arrangements
by
DANIDA
could
provide
a
significant
tool
to
aligning
external
support
into
a
less
project
driven
approach.
52
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73. The
leading
NGOs,
which
are
a
critical
part
of
the
service
delivery
model,
include:
International:
The
NRC,
CARE
International,
Save
the
Children
International,
AET,
ADRA,
Mercy
Corps,
CFBT-UK,
Islamic
Relief,
Handicap
International,
OXFAM,
Concern
Worldwide,
PENHA,
and
others.
National:
CLHE,
HAVAYOCO,
Somalia
Youth
Federation
Network,
Child
Aid
Somalia,
Mudan
Youth
Umbrella.
3.3.3
CURRENT
CAPACITY
TO
DELIVER
THE
SERVICES
REQUIRED
74. There
are
a
number
of
major
obstacles
preventing
substantial
reform
and
change
within
the
MoEHS
in
Somaliland,
in
relation
to
decentralization,
including:
Ongoing
functional
restructuring
of
new
departments
means
that
many
of
the
core
structures
proposed
to
play
a
key
role
in
delivery
have
yet
to
be
established;
Fiscal
constraints
limit
service
delivery
coverage,
expansion
and
quality;
Salaries
and
employee
motivation
exacerbated
by
disciplinary
and
productivity
issues;
Training,
especially
in
the
use
of
computers,
and
the
application
of
effective
administrative
and
modern
management
practices
and
leadership
skills;
Transport
and
per
diems
acting
as
a
disincentive
for
supervisionmonitoring
and
assessment
of
progress
in
primary
and
secondary
schools;
Lack
of
office
space
and
ICT
equipment
to
fulfill
basic
functions;
Systems
for
monitoring
and
evaluating
the
impact
of
MoEHS
policy
changes
on
the
learning
and
teaching
environments,
in
schools,
colleges
and
universities;
and,
Implementation
and
oversight
of
policies
and
laws
pertinent
to
the
implementation
of
quality
educational
services
for
all
Somaliland
citizens,
but
especially
those
pertaining
to
women,
minorities
and
the
pastoralist
majority.
3.3.4
FINANCIAL
AND
INSTITUTIONAL
GAPS,
HINDERING
SERVICE
DELIVERY
75. An
assessment
of
the
MoEHS
financial
management
procedures
recently
carried
out
through
ICDSEA
revealed
a
number
of
logical
targets
for
PFM
reforms,
many
of
which
impact
the
limits
of
decentralization.
Undertaking
PFM
reforms
(to
meet
allocative
and
operational
efficiency
and
fiscal
sustainability
objectives)
for
the
sector
will
take
time,
and
considerable
capital
and
human
resources.
In
particular
moving
towards
an
automated
Financial
Management
Information
System
(FMIS)
will
costs
millions
of
dollars,
but
if
structured
around
a
policy
based
sector
budget
tracking
progress
in
execution
will
be
a
major
gain
to
the
sector.
Other
issues
raised
through
ICDSEA
assessments
include:
The
Ministry
is
not
using
a
consolidated,
or
integrated,
financial
information
tracking
system;
financial
data
is
still
stored
in
manual
form.
It
is
not
possible
to
rapidly
establish
the
MoEHSs
total
payments
and
revenues,
or
track
stored
assets.
The
use
of
manual
systems
may
be
correct,
but
these
systems
are
not
fully
integrated,
and
operate
as
stand-alone
manual
documents;
The
Ministry
does
not
maintain
a
general
ledger
accounting
system.
A
single
entry
accounting
system
is
installed
that
is
not
in
conformity
with
a
general
ledger
system,
which
uses
a
double-entry
system.
The
lack
of
a
general
ledger
system
means
that
any
information
necessary
for
management
of
the
MoEHS
must
be
extracted
from
various
sub-systems.
At
present,
the
MoEHS
prepares
no
financial
statements
and
this
has
led
the
Accountant
General
to
set
up
a
parallel
vote
book
to
assist
in
the
preparation
of
the
financial
statements;
There
is
a
lack
of
documented
financial
management
and
internal
control
guidelines;
The
present
internal
control
environment
has
significant
weaknesses
and
is
incapable
of
achieving
comprehensiveness,
validity,
and
accurate
assessments
and
valuations;
and,
The
Ministry
lacks
an
Internal
Audit
function.
The
role
of
Internal
Audit
is
to
monitor
the
systems
that
financial
functions
manage.
Modern
thinking
posits
that
an
internal
audit
must
be
independent
53
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Final
Report
of
the
finance
component
with
a
direct
reporting
link
to
the
Director
General,
thus
preserving
accountability
and
neutrality.
3.3.5
GENDER
&
HUMAN
RIGHTS
76. Gender,
now
plays
an
increasingly
critical
role
in
defining
the
MoEHS
recruitment
and
promotion
policies.
A
functioning
GU
has
been
established
with
oversight
for
gender
issues
throughout
the
MoEHS,
and
beyond.
The
Units
role
is
to
address
gender
equity
and
equality
issues
within
Somalilands
education
institutions.
In
an
on-going
gender
assessment,
attempts
will
be
made
to
identify
gender
strengths,
weaknesses,
opportunities
and
threats
and
recommend
optimal
ways
for
improving
the
effectiveness
of
gender
awareness
activities
at
both
the
centralized
and
decentralized
levels
within
the
ministry.
The
GUs
work
has
begun
to
focus
on
the
following
priorities:
To
clarify
the
current
mandate
and
functions
of
the
GU;
To
identify
Gender
Mainstreaming
strategies
in
the
current
national
education
plan,
and
other
policy
instruments;
To
strengthen
the
current
staff
capacity
of
the
GU,
to
meet
the
objectives
of
the
national
education
plan;
To
determine
the
facilities
and
equipment
needed
for
the
GU;
To
identify
previous
training
received
by
the
Unit
staff
over
the
past
three
years;
and,
To
identify
the
technical
gaps,
and
resource
needs
of
the
GU.
77. The
issue
of
Human
Rights
was
pivotal
in
the
drafting
of
the
Somaliland
Constitution.
Policy
documents,
parliamentary
legislation
and
other
documents
reviewed.
However,
work
currently
being
carried
out
by
the
curriculum
development
unit
at
the
Ministry,
gives
priority
to
the
inclusion
of
human
rights
issues
in
the
new
curriculum,
and
places
a
stronger
emphasis
on
life
skills
learning,
especially
at
the
primary
level.
78. The
issue
of
insecurity
was
seldom
mentioned
in
the
context
of
discussions,
which
took
place
in
any
of
the
five
ministries
visited.
Where
the
topic
did
arise,
it
was
raised
indirectly
during
the
Teams
first
visit
to
the
Ministry
of
the
Interior
and
assurance
was
provided
that
the
security
situation
in
Somaliland
was
under
control,
however
the
team
followed
UN
security
protocols
and
travel
with
an
armed
police
escort
when
visiting
locations
outside
of
Hargeisa.
54
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Table
17:
Definition
of
Functional
Assignment
by
Sub-Function:
Somaliland
Ministry
of
Education
and
Higher
Studies
Future
Present
Implementation
Modality
Future
Implementation
Modality
Implementation
Timeframe
Justification
De- De-
1
2-5
10
Sub-sector
Functions
Central
concentrat Delegated
Devolved
Central
concentr Delegated
Devolved
yr
yrs
yrs
ed
ated
Regional
Give
Give
more
Develop
X
Cant
proceed
without
first
oversight
&
priority
to
responsibility
to
procedure
to
completing
the
development
of
a
Implementation
Finalizing
both
the
REOs
and
involve
standardized
national
primary
with
assistance
Curricula
DEOs
for
teachers
&
curriculum.
The
CD
process
should
from
subject
for
the
monitoring
and
heads
in
the
ideally
involve
communities
and
LGs
Design
&
specialists
at
primary
supervising
implementati through
the
participation
of
CECS
center
level
to
the
primary
education
on
of
and
DCs.
Central
quality
services.
curriculum
Curriculum
Develop
of
a
coherent
MoEHS.
Hold
both
levels
changes
at
Development
national
curriculum.
more
accountable
the
school
to
Lags
through
level.
Make
DCs.
this
process
more
transparent
by
involving
the
LGs
through
their
DCs.
Complete
the
Strengthen
Strengthen
Re-build
Rebuild
DEO
X
All
levels
of
education
in
SL
have
still
development
of
Regional
supervision
REO
capacity
and
to
develop
and
implement
national
national
standards.
oversight
by
to
better
capacity
to
train
standards.
Quality
assurance
is
a
training
REO
coordinate
provide
common
missing
element.
Primary
Education
Standards
staff
&
better
Implement
profession District
setting
Officer
and
standards
al
Regional
oversight
Head
Teachers
to
monitor
standards
Reform
the
Rebuild
capacity
Carry
out
Strengthen
Give
District
X
inspectorate
and
to
allow
key
Regional
Officers
and
retrain
staff
to
better
Regional
staff
to
Coordinatio Inspectora School
carry
out
decentralized
better
carry
out
n
&
te
and
link
inspectors
There
is
an
urgent
need
to
reform
functions
oversight
&
oversight
accountabi the
training
and
restructure
the
whole
implementation
functions
lity
of
and
support
inspectorate
and
supervisory
service
at
the
regional
more
decentraliz required
to
of
the
MoEHS
in
line
with
the
JPLG
Inspection
requirements
to
transfer
education
levels
professiona ed
carry
out
lly.
functions
their
service
delivery
to
the
LG
level.
to
the
functions.
MoEHSs
reformed
oversight
units.
55
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Table
17:
Definition
of
Functional
Assignment
by
Sub-Function:
Somaliland
Ministry
of
Education
and
Higher
Studies
Setting
&
Marking
of
Oversight
Give
joint
X
Need
to
improve
and
consolidate
national
exams
are
responsibilities
responsibility
to
existing
gains
&
train
cadre
of
already
carried
out
at
need
to
be
the
REOs
and
mentors
and
markers
the
MoEHS
level
delegated
to
the
DEOs
for
REOs
once
these
organizing
and
are
rebuilt
and
managing
the
re-activated.
examination
process
at
the
Examinations.
school
level.
Re-
train
staff
where
necessary.
Use
the
work
already
Work
with
REOs
Finalize
X
There
is
an
urgent
need
to
carried
out
by
AET
as
to
insure
new
national
harmonize
quality
and
content
of
the
basis
for
curriculum
is
guidelines
secondary
teaching
in
all
schools
in
Secondary
Curriculum
completing
the
applied
and
and
train
line
with
the
proposed
national
sec.
national
curriculum.
compliant
with
teachers
to
Curriculum
Education
Development
the
new
implement
standards.
them
with
TA
from
the
REOs
RE-train
REOs
Oversee
X
The
implementation
on
one
and
DEOs
in
the
and
secondary
curriculum
with
agreed
application
of
supervise
standards
should
help
to
raise
the
the
national
the
level
of
secondary
teaching
and
Standards
standards
implement learning
nationally
Insure
that
sec.
ation
of
Setting
curriculum
conforms
standards
in
all
public
with
national
standards
at
all
levels
of
and
private
implementation.
schools
Re-train
the
existing
Provide
Oversee
X
There
is
an
urgent
need
to
rebuild
cadre
of
inspection
and
inspectors
with
the
quality
and
strengthen
the
central,
regional
recruit
younger
better- computers,
and
and
district
inspectorate,
and
to
qualified
staff
to
office
facilities,
frequency
make
them
more
accountable
to
revitalize
the
service.
transport
and
of
school
the
LGs
at
the
local
level.
per-diems
to
inspection
carry
out
their
services
by
Inspection
functions
more
increasing
effectively
at
the
the
involvemen
decentralized
t
of
level.
Regional
and
District
56
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Table
17:
Definition
of
Functional
Assignment
by
Sub-Function:
Somaliland
Ministry
of
Education
and
Higher
Studies
Councils
in
this
process.
There
is
a
need
to
The
X
School
exams
at
this
level
are
being
strengthen
the
strengtheni implemented,
set
and
marked.
monitoring
and
ng
of
the
However,
better
trained
exam
implementation
of
the
national
monitors
and
mentors
would
new
examination
exam
improve
the
quality
of
this
service.
guidelines
commissio
n
though
a
better
Examinations
trained
cadre
of
exam
mentors
and
markers
is
a
needed
first
step.
There
is
a
need
to
A
national
ECE
A
decision
develop
a
national
ECE
commission
still
needs
to
Curriculum
meeting
should
be
be
taken
at
international
formed
to
guide
The
the
national
X
There
is
a
need
is
to
establish
some
standards.
and
advise
this
national
level
national
ECE
centers
or
schools
on
a
process.
curriculum
whether
ECE
pilot
basis
in
order
to
develop
and
national
standards
and
content.
should
be
a
guidelines
private
Working
with
any
existing
private
should
sector
sector
ECE
or
Kindergarten
centers
Curriculum
incorporate
service,
or
if
is
advised
to
learn
from
their
a
clear
set
this
should
experiences.
of
Development
be
a
publicly
standards
provided
and
service.
The
requireme decision
will
nts
for
determine
implement what
the
ation.
government
s
role
will
Early
ultimately
Childhood
be.
Education
Establish
national
Implement
Insure
Standards
should
be
incorporated
standards
and
develop
standards
via
standards
into
the
new
curriculum
from
the
Standard
guidelines
during
ECE
inspectors
are
start
and
supervised
via
REOs
and
curriculum
recruited
and
implement
DEOs
held
accountable
through
development
and
trained
for
work
ed
through
Regional
and
District
Councils.
Setting
testing
phases.
out
of
the
REOs
Regional
Especially
if
the
ECE
services
remain
X
and
DEOs
and
District
in
the
private
sector.
Councils.
A
new
cadre
of
ECE
inspectors
will
need
to
be
recruited
and
trained
as
Inspection
a
priority,
especially
if
the
ECE
Recruit
and
train
a
Encourage
Select
and
57
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Table
17:
Definition
of
Functional
Assignment
by
Sub-Function:
Somaliland
Ministry
of
Education
and
Higher
Studies
cadre
of
ECE
inspectors
frequent
school
train
cadre
service
remains
in
the
private
to
lead
the
oversight
inspections
and
of
ECE
sector.
Inspectors
will
be
expected
procedures
for
ECE
mentoring
while
inspectors
to
work
closely
with
Regional
from
the
MoEHS
HQs.
also
providing
and
Councils
(RCs)
and
DCs
at
the
LG
Inspection
TA
to
teachers
supervisors
level.
and
Head
Teachers.
X
Develop
M&E
Apply
M&E
Establish
Monitoring
and
evaluation
of
ECE
protocols
for
ECE
through
ECE
services
if
they
remain
in
the
private
inspectors
with
centers/
domain,
will
be
channeled
through
the
help
of
ECE
schools
in
RCs
And
DCs
to
give
the
LGs
more
Teachers
and
pupils.
school
heads,
pilot
areas
ownership
of
these
essentially
local
RCs
and
DCs
and
use
services.
these
to
develop
a
national
X
Monitoring
&
curriculum
and
Evaluating
national
standards.
Establish
and
Implement
Delegate
The
HE
directorate
has
only
recently
implement
a
National
standards
supervision
been
set
up
so
after
an
needs
HE
Council/
through
and
assessment
there
will
be
a
need
to
Commission
and
HEC
oversight
establish
a
HEC
to
work
on
implement
agreed
functions
to
standards
Standards
standards
universities
X
Setting
through
the
HEC,
which
will
represent
all
registered
HE
institutions.
Create
an
inspectorate
Devolve
all
The
HE
directorate
in
the
MoEHS
for
HE
&
work
with
HE
me
will
have
a
key
role
in
oversight
for
HEC
to
maintain
functions
HE
quality
and
standards
but
should
and
work
with
HEC
to
insure
responsibili implementation
at
the
local
and
Supervision
High
quality
&
national
ties
to
HEC
institutional
levels.
HEC
will
have
to
standards
standing
evolve
a
modus
operandi
for
committee working
at
the
LG
level.
s.
58
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Table
17:
Definition
of
Functional
Assignment
by
Sub-Function:
Somaliland
Ministry
of
Education
and
Higher
Studies
X
Decide
if
DVET
should
Implement
If
DVETs
The
many
different
private
sector
remain
in
private
curriculum
remain
TVET
curricula
will
need
to
be
sector
hands
and
with
help
from
privately
run
harmonized
to
insure
quality
and
Develop
a
common
college
local
services
relevance
to
national
manpower
Curriculum
national
curriculum
instruction,
a
they
will
needs.
Harmonization
will
be
an
new
need
to
be
MoEHS
function
but
Development
inspectorate
held
implementation
and
supervision
service
and
the
accountable
would
devolve
to
the
RC
and
DC
RCs
and
DCs
to
the
LG
X
levels.
level
through
RCs
and
DCs.
Set
national
standards
Oversee
Standards`
will
be
defined
via
during
the
DVET
standard
external
assistance
and
using
harmonization
process.
implementatio international
criteria.
They
will
be
TVET
n
through
monitored
via
the
inspectorate
Standard
newly
working
with
the
LGs.
established
X
inspectorate
Setting
working
in
close
coordination
with
the
LGs
Develop
a
flexible
Maintain
joint
Certification
still
needs
to
move
certification
system,
oversight
of
away
from
academic
exams
to
skills
that
can
be
applied
testing
through
specific
aptitude
testing
that
will
Examinations
&
equitably
across
MoEHS
with
need
to
be
monitored
from
the
certification
different
DVET
services
colleges,
the
MoEHS
in
close
coordination
with
inspectorate
X
LGs.
and
LGs.
Design
a
national
Produce
CD
The
current
NFE
service
is
curriculum
by
and
fragmented
and
lacks
accountability
Curriculum
harmonizing
the
many
guidelines
because
it
is
mainly
financed
and
Development
NGO
curricula
into
one
which
will
X
delivered
by
NGOs
free
of
MoEHS
59
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Table
17:
Definition
of
Functional
Assignment
by
Sub-Function:
Somaliland
Ministry
of
Education
and
Higher
Studies
60
Study
on
Functional
Assignments
SOMALILAND
Final
Report
3.4
PROPOSED
UNBUNDLING
APPROACH
79. The
proposed
approach
to
unbundling
the
sector
must
build
on
the
current
reform
framework
being
pioneered
by
ICDSEA,
the
NDP
and
commitment
to
improving
decentralized
delivery
in
line
with
government
policy.
Given
that
Law
No.
23/2002
was
not
explicit
in
allocating
functional
assignments
within
services
between
the
sectors
and
local
government,
with
both
the
sector
and
local
government
given
full
authority
with
regards
education
service
delivery,
the
main
focus
of
unbundling
is
to
remove
uncertainty
and
to
set
assignments
where
they
should
properly
be
located.
In
the
case
of
education
service
delivery
in
Somaliland,
it
must
also
address
why
the
MoE
Decentralization
Policy
Framework
proposed
in
2008
was
not
executed.
As
a
result,
and
based
on
the
analysis
provided
above,
the
assessment
team
proposes
the
following
approach
to
unbundling
the
education
sector
in
Somaliland:
To
develop
functional
assignments
based
on
the
proposednot
existingorganizational
structure
of
the
MoE,
given
that
the
new
structure
does
not
reflect
a
change
in
education
per
se
but
rather
just
a
better
functional
structure.
Moreover,
given
that
Law
23/2002
was
not
explicit
on
the
relationship
between
local
government
and
the
REO
and
DEO
staff,
and
given
the
reality
that
not
all
REOs,
and
DEOs
are
operation
and
staffed,
functional
assignments
may
need
to
be
adapted
on
a
district-by-district
basis
until
fiscal
and
staffing
imbalances
are
addressed.
District
level
assignments
need
to
differentiate
between
which
Grade
district
is
the
unit
of
delivery,
with
Grade
A
and
B
districts
far
more
capable
of
financing
education
assignments
than
Grade
C
and
Grade
D
districts.
The
basis
of
the
district
grading
however
needs
to
be
revisited
and
demographic
information
would
be
required
to
develop
administrative
units
that
are
viable
administrative
entities.
Significant
increases
in
sector
financing
by
government
lends
weight
to
arguments
to
strengthen
both
REOs
and
DEOs
in
particular,
whilst
also
clarifying
the
exact
roles
and
functions
of
District
Administration
and
the
CECs
in
delivery
(which
are
proposed
below);
Given
the
strong
presence
of
NGOs
and
private
sector
delivery
mechanisms,
a
key
focus
must
be
on
strengthening
sector
regulations
and
state
education
curricula,
as
well
as
the
regulatory
compliance
functions;
Given
the
requirement
to
continue
harnessing
sector
resources,
district
administration
and
the
CECs
will
need
to
continue
playing
a
role
in
mobilizing
financial
resources
to
compliment
new
financing
from
the
center;
Decentralizing
the
gender
oversight
and
compliance
function
to
the
district
level
in
relation
to
CECs
is
of
critical
importance;
Strong
integration
with
both
health
and
WASH
activities
is
warranted
to
guarantee
that
schools
have
access
to
the
core
services.
Schools
must
therefore
also
been
seen
as
a
focal
unit
of
health
and
hygiene;
Formalizing
an
approach
to
schools
based
management
(including
school
management
guidelines
for
Boards,
PTAs
etc)
would
considerably
strengthen
conformity
to
education
standards
and
processes;
and,
All
proposed
assignments
must
have
recourse
to
fiscal
realities,
with
external
support
for
new
structures
envisaged
within
a
MTEF.
Piloting
sector
specific
grants
to
the
DCs
from
donor
trust
funds
could
be
explored.
61
Study
on
Functional
Assignments
SOMALILAND
Final
Report
3.5
REVIEW
OF
FUNCTIONAL
ASSIGNMENTS
80.
The
analysis
provided
in
Table
17
above,
which
was
carefully
discussed
across
the
MoEHS,
and
in
the
field,
highlights
the
complexity
of
deconcentrating
functions
from
the
center
when
the
central
Ministry,
and
REO
and
DEO
offices
are
substantially
under-staffed
or
not
staffed
at
all.
However,
based
on
the
results
of
the
field
assessment
and
the
unbundling
approach
outlined
out
lined
under
3.4
above,
the
following
functional
assignments
should
be
provided
by
REOs
and
DEOs;
where
they
exist.
A
survey
of
sub-national
staff
and
their
minimum
needs
also
needs
to
be
undertaken
to
ensure
that
the
minimum
REO
and
DEO
structure
is
in
place
to
perform
existing
mandates,
as
shown
below:
The
REOs,
based
on
the
results
of
fieldwork,
currently
have
the
following
functional
assignments:
Representing
the
MoEHS
in
all
relevant
regional
decision
making
meetings;
Member
of
their
respective
Regional
Governor's
Council
and
other
relevant
Regional
Committees;
Supervision
and
oversight
of
all
educational
activities
in
their
respective
regions;
Support
the
planning
of
education
needs
at
the
regional
level;
Manage
the
distribution
of
public
funds
and
stipends
and
oversight
of
funds
collected
and
used
by
CECs/
SECs;
Supervising
MoEHS
programs
and
projects
with
assistance
from
their
staff
and
the
DEOs;
Ensuring
that
national
examinations
are
properly
organized
and
conducted
in
schools
and
centers;
Coordinating
examination
supervision
with
the
National
Education
Council
Directors,
in
their
respective
MoEHSs;
Accountable
for
the
delivery
of
educational
services,
assisted
by
Regional
Inspectors/support
staff;
Responsible
for
mediating
conflicts,
and
dealing
with
issues
related
to
discipline
within
their
own
jurisdiction,
including
down
to
the
school
level,
if
necessary;
and,
Representing
the
Minister
unless
the
issue
is
political,
in
which
case
it
is
passed
to
the
MoEHS.
The
DEOs,
based
on
the
results
of
fieldwork,
currently
have
the
following
functional
assignments:
Responsible
for
the
functioning
of
schools,
teachers
and
head
teachers
under
their
purview;
Representing
the
REO
at
the
District
Education
Committee
and
District
Council
levels;
Coordinating
with
the
Social
Affairs
Sub-Committee
to
support
district
education
needs
planning;
Providing
technical
and
other
support
to
schools
in
their
districts,
working
closely
with
Head
Teachers;
Mediating
between
teachers
and
the
community
and
work
in
close
collaboration
with
HTs
to
make
sure
that
SECs
are
up
and
functioning;
Assisting
the
REO
in
the
distribution
of
stipends
(if
requested
by
the
REO
to
do
so)
and
other
MoEHS
payments
to
teachers
and
HTs
at
the
school
level;
They
are
the
MoEHSs
and
REOs
first
line
of
support
in
dealing
with
school
level
discipline
and
other
problems;
Representing
REO
and
MoEHS
interests
at
the
District
Council
level,
reporting
back
to
the
REO
district
level
education
needs
and
problems;
Responsible
for
disseminating
information
to
the
district
level
of
changes
in
rules
and
other
changes
in
practices
pertaining
to
the
delivery
of
educational
services
at
the
local
level;
and,
Keeping
REOs
well
informed
about
the
educational
situation
in
their
own
districts.
62
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81. Further,
given
that
the
District
Councils,
and
where
established
their
Social
Affairs
Sub-Committees
have
a
formal
mandate
for
education
production
and
provision,
based
on
discussion
in
the
field,
we
propose
Law
23/2002
be
re-written
to
include
the
following
minimum
assignments
for
DC.
To
make
this
work
however,
horizontal
fiscal
imbalances
will
need
to
be
overcome
and
sector
categorical
grants
could
be
provided
to
the
DCs
to
meet
such
provision
requirements.
Revenue
and
expenditure
assignments
to
finance
education
investments
in
coordination
with
MoEHS
policy/planning
guidelines;
Participated
in
Bottom-Up
District
Education
Planning;
Approving
the
District
Education
Plans
and
Annual
Budget
Estimates;
Supports
the
DEO
and
REOs
in
bottom-up
planning
district
education
needs;
Oversight
of
school
construction
standards,
location
and
combined
services
based
on
central
guidelines
and
standards;
and,
Interacts
and
motivates
communities.
ADJUSTMENTS
TO
PROVISION
AND
PRODUCTION
FUNCTIONS
82. Law
No.
23/2002
needs
to
be
revised
to
include
a
proposed
set
of
functional
assignments
that
clarifies
the
roles
of
CECs
and
District
and
regional
offices
in
delivery
for
the
basic
and
essential
service
sectors.
Consideration
also
needs
to
be
given
to
strengthening
the
existing
Social
Affairs
Departments
in
Local
Government
to
be
financed
through
intra-governmental
transfers,
forming
the
basis
of
a
common
services
agreement.
The
current
law
legislates
the
establishment
of
autonomous
local
government
but
implies
that
District
Councils
and
their
administration
maintain
a
monopoly
on
education
production
and
provision
roles.
Clearly,
and
orderly
separation
of
functional
assignments
between
the
sector
Ministry
and
local
government
is
needed
and,
where
they
have
common
functions,
coordination
mandates
need
to
be
clearly
defined.
83.
As
stated
elsewhere
in
the
document,
and
made
clear
within
the
NDP,
the
new
NGO
Act
needs
to
be
implemented,
with
a
strong
focus
on
regional
and
district
level
oversight.
The
NGO
Act
was
passed
by
the
Parliament
(Law
No.
43/2010)
and
signed
into
a
Presidential
decree
No
82/112010
in
November
2010.
The
Act
has
been
established
to:
(i)
encourage
NGOs
to
fully
and
appropriately
participate
in
the
development
of
the
country
(ii)
ensure
that
NGOs
are
legally
constituted
(iii)
regulate
the
activities
of
NGOs
so
that
they
are
aligned
with
the
countrys
national
priorities
and
development
plan
(iv)
build
the
capacity
of
community
based
organizations;
and
(v)
ensure
accountability
and
transparency.
Clarity
with
regards
how
the
new
Act
applies
to
the
education
sector
needs
to
be
further
developed,
and
applied.
It
also
needs
to
be
noted
that
concerns
have
been
raised
about
the
new
NGO
Act,
which
will
have
to
be
revised
to
clarify
regional
and
district
NGO
oversight
and
coordination
mandates.
84. Similarly,
given
the
need
to
promote
evidence-based
policy,
there
is
an
urgent
need
to
strengthen
the
management
of
information
within
the
sector,
ideally
through
the
formulation
of
a
national
Statistics
Act
and
Statistical
Master
Plan.
Clearly,
in
addition
to
MDG
related
reporting,
and
to
any
medium
term
results
framework
for
the
education
sector,
there
is
a
need
to
focus
on
the
informational
needs
of
the
sector,
including
FMIS
and
Human
Resources
Management
Information
System
(HRMIS)
systems.
3.6
SERVICE
DELIVERY
MODEL
DEVELOPMENT
85. Somaliland,
like
most
other
education
sectors
is
developed
around
pre-school,
primary,
secondary
and
tertiary
education,
although
the
education
budget
is
not
established
around
such
a
framework.
However,
and
of
great
significance
to
the
sector,
given
that
the
majority
of
production
services
are
by
63
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Final
Report
default
highly
decentralized,
poorly
coordinated
and
fragmented,
there
is
a
need
for
Government,
Donors
and
the
Private
Sector
to
agree
on
a
number
of
service
delivery
models
where
standards
and
practices
can
be
set,
to
increase
conformity
to
preferred
sector
governance
standards.
The
three
main
actors
for
all
service
delivery
models
are
(i)
citizens
(ii)
the
state
and
(iii)
service
providers,
all
of
whom
can
be
supported
by
donors.
Any
model
must
deliver
sector
governance
standards,
encourage
accountability,
transparency
and
value
for
money
to
increase
coverage.
86. Given
that
the
state
(MoEHS)
is
unable
to
finance
large
elements
of
the
educational
system,
it
is
likely
that
most
students
are
not
enrolled
in
public
schools
operated
by
civil
servants.
Rather,
schools
are
community,
NGO
or
private
sector
owned,
meaning
that
a
service
delivery
model
must
be
focused
on
provision
and
not
production
functions
until
fiscal
resources
allow
production
to
be
financed.
87. Whilst
this
work
was
not
intended
to
identify
service
delivery
models,
given
the
high
degree
of
fragmentation,
it
seems
desirable
to
promote
a
SBM
system
as
the
core
model
for
primary
and
secondary
education,
around
which
school
governance
guidelines
are
set
and
enforced.
Such
an
approach
formalized
decentralized
delivery
around
a
common
set
of
standards
and
practices
that
can
be
enforced
by
REO,
DEO
and
EC
Social
Affairs
Committee
staff.
Donors
too,
who
are
often
financing
NGOs,
will
be
able
to
build
SBM
standards
into
all
their
contracts
to
enforce
standards,
and
discussion
with
the
Diaspora
for
private
schools
could
also
be
discussed
in
this
light.
For
tertiary
education,
private
sector
service
delivery
models
appear
the
most
logical
with
government
setting
broad
curricula
and
examination
standards
and
procedures
only.
3.7
EDUCATION
SECTOR
PROPOSED
NEXT
STEPS
88. There
are
numerous
priorities
that
fall
out
of
this
study
that
will
need
to
be
undertaken
within
the
coming
2-5
years,
critical
to
strengthening
the
education
sector.
However,
in
terms
of
concrete
next
steps
it
is
suggested
that
the
following
activities
are
considered
by
government
and
donors:
The
overall
policy
and
strategy
framework
is
well
developed,
and
guidelines
exist
in
support
of
school
management,
although
the
adoption
of
a
formal
approach
to
School
Based
Management
would
allow
a
cohesive
framework
for
service
delivery
to
emerge
around
which
pilot
clusters
could
be
supported
to
build
a
common
approach
across
what
remains
a
rather
fragmented
system;
Following
the
announcement
by
the
MoE
to
provide
free
primary
education
for
all,
which
reflects
improved
sector
resourcing,
there
still
remains
uncertainty
regarding
how
to
manage
the
interface
between
the
sector,
LGs
and
community
financing
and
a
consolidated
budgeting
approach
appears
justified.
General
functional
assignments
are
proposed
for
Regional
Education
Officers
(REOs),
District
Education
Officers
(DEOs)
and
Local
Governments,
to
form
the
basis
for
national
consultation;
The
need
for
Regional
Education
Offices
(REOs),
District
Education
Offices
(DEOs)
and
District
Councils
(DCs)
to
hold
consultative
discussions,
and
also
for
assignments
to
be
made
explicit
in
the
education
law
and
a
revised
Law
23/2002
is
clear.
Moreover,
given
current
resource
limitations,
it
would
be
useful
to
discuss
the
possible
co-location
of
DEO
and
district
administration
support
to
the
sector,
to
be
placed
within
the
Social
Affairs
Department
perhaps
as
a
common
services
department;
While
sector
costing
is
urgently
required,
such
an
approach
must
be
mapped
to
the
national
budget
formulation
process,
and
ideally
the
ongoing
costing
exercise
would
be
undertaken
as
a
top-down
64
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SOMALILAND
Final
Report
medium
term
fiscal
framework
and
bottom-up
sector
expenditure
framework,
covering
wage,
non-
wage,
operations
and
maintenance
and
capital
investment
costs;
There
is
a
need
to
urgently
identify
the
different
Service
Delivery
Models
(SDM)
for
primary
and
secondary
education,
covering
urban,
rural
settings
and
pastoral
settings.
For
School
Based
Management
(SBM),
by
way
of
an
example,
such
an
approach
brings
existing
legislation,
regulations
and
management
practices
into
a
national
standard
and
guideline,
around
which
schools
emerge
as
the
primary
unit
of
delivery.
Such
an
approach
needs
to
be
developed,
piloted
through
clusters
and
then
scale
up
to
maximize
cohesion
around
a
common
set
of
educational
standards;
The
financial
contributions
of
local
governments
need
to
be
formalized
as
a
budget
percentage
rule
(perhaps
around
5%),
around
which
functional
assignments
would
be
developed
reflective
of
the
resources
available
for
different
districts;
There
is
a
need
to
remove
the
horizontal
fiscal
imbalances
whilst
perhaps
considering
options
for
sector
categorical
grants
to
the
DCs.
Further
work
would
be
required
to
develop
such
a
pilot
and
this
should
be
done
in
support
of
consolidated
local
government
budgeting;
Undertake
a
full
sector
costing
(on
budget
and
off-budget
flows)
to
determine
current
education
sector
financing
with
a
view
to
identifying
how
best
to
de-projectize
the
sector;
Discuss
the
proposed
functional
assignments
for
REO,
DEO
and
DCs
with
government,
strengthen
as
required,
and
build
these
into
the
Education
Law
and
revised
Law
23/2002;
and,
Agree
the
preferred
SBM
(school
government/management,
PTA,
head
teacher,
curricula,
pay,
services,
exam
procedures
etc.)
model
for
primary
and
secondary
education,
making
sure
that
all
new
schools
adopt
these
practices
and
existing
schools
are
brought
in
line
through
cluster
financing
mechanisms.
65
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Health Sector
Assessment Findings
66
Study
on
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Assignments
SOMALILAND
Final
Report
QUICK
SUMMARY
OF
HEALTH
SECTOR
FINDINGS
1. The
Health
sector
in
Somaliland
has
made
significant
progress
on
the
policy
and
strategy
front,
and
the
draft
2011
National
Health
Policy,
which
is
clear
in
its
commitment
to
decentralization,
once
enacted
will
provide
further
support
for
a
more
cohesive
system.
The
law
is
not
however
clear
on
the
role
of
District
Councils,
and
this
needs
to
be
addressed.
However,
with
the
sector
dominated
by
non-state
actors
including
the
private
sector,
NGOs
and
external
donors,
MoH's
role
will
need
to
remain
heavily
focused
on
provision
and
not
production
roles,
with
the
aim
of
increasing
compliance
to
mandatory
policy
and
practices.
2. There
are
currently
four
service
delivery
models:
(i)
the
vertical
MoH
model
with
limited
provision
and
production
capabilities
(ii)
the
four-tier
EPHS
system
which
provides
primary
care
as
part
of
the
wider
system
(iii)
the
District
Council
assignments
which
are
poorly
defined
in
Law
23/2002;
and
(iv)
private
sector
and
non
governmental
organization
provision.
Given
that
government
has
limited
to
no
control
over
the
majority
of
financing
(which
is
either
private
or
contracted
by
donors
directly),
with
most
services
de
facto
contracted
out,
a
key
focus
of
future
investments
must
be
on
improving
compliance
around
a
set
of
agreed
health
care
standards.
3. Health
care
services
are
therefore
highly
decentralized
by
default
and
not
design,
and
existing
service
delivery
models
can
best
be
characterized
by
a
strong
(largely
un-regulated)
private
sector,
with
substantial
NGO
and
donor
financing
all
of
which
is
off-budget.
The
coordination
of
MoH
and
the
District
Councils
provision
and
production
functions
remain
poorly
developed,
and
general
functional
assignments
are
outlined
in
this
section
around
which
formal
discussion
between
the
sector
Ministry
and
local
governments
forge
create
greater
clarity.
4. The
newly
established
National
Development
Plan
(NDP)
advocates
substantial
increases
in
public
provision,
placing
health
as
the
lead
sector.
Budgetary
allocations
however
will
need
to
be
proposed
by
the
executive
and
agreed
to
by
parliament
and
strengthening
sector
financing
requires
the
entire
sector
(not
just
the
EPHS)
to
be
costed,
as
the
basis
for
justifying
increased
sector
spending.
5. The
EPHSwhilst
still
to
be
rolled
outlays
the
foundation
for
the
primary
health
systems
and
desperately
needs
to
be
rolled
out
into
new
regions.
For
this
to
happen
the
four
layer
referral
system,
which
is
highly
decentralized
by
design,
and
policy,
planning,
sector
costing
and
regulatory
oversight
functions
need
to
be
established,
and
staffed;
6. In
terms
of
the
District
Councils,
which
are
graded
A
to
D
reflective
of
population
levels
and
other
variables,
the
roles
of
the
DC
in
health
care
are
outlined
in
Law
23/2002,
but
not
generally
provided
in
practice.
Most
DC
Social
Affairs
Departments
have
between
3-6
staff
and
although
a
Health
Department
has
been
established
in
Hargeisa,
other
districts
do
not
have
such
capacities;
7. The
investment
focus
for
the
sector
must
be
on
removing
financing
constraints,
costing
the
sector,
rolling
out
the
EPHS
and
building
central
policy,
planning,
budgeting
and
regulatory
oversight
and
enforcement
capacities.
Secondary
and
tertiary
health
care
needs
are
also
essential,
as
are
meeting
health
needs
in
pastoral
areas,
where
adaptive
service
delivery
models
will
need
to
be
developed;
67
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8. With
such
limited
public
sector
financing
for
the
sector,
and
with
the
EPHS
providing
a
strong
framework
for
primary
delivery,
though
even
this
needs
to
be
rolled
out
into
new
regions,
the
key
role
of
the
MoH
should
be
in
directing
policy,
undertaking
sector
planning
(which
involves
regional
and
district
structures),
in
budgeting
and
regulatory
oversight
and
enforcement.
Despite
significant
gains
and
Governments
commitment
to
place
health
at
the
top
of
the
NDS
priority
list,
a
number
of
other
high
priority
steps
need
to
be
undertaken.
These
include:
Costing
the
entire
sector
(on
and
off-budget
flows)
including
the
core
wage
and
non-
wage
recurrent,
O&M
and
capital
costs,
outside
of
those
already
costed
by
the
EPHS,
and
identify
sources
of
financing;
Establish
and
cost
a
service
delivery
baseline
and
set
budget
ceilings
for
3-5
years
baaed
on
a
medium
term
expenditure
framework;
Agree
with
Government
and
all
key
donors
the
preferred
Service
Delivery
Models
for
health
care
delivery,
given
the
central
role
on
non-state
providers,
and
then
focus
on
building
this
system,
based
around
the
EPHS;
Move
towards
a
functional
(program
based)
budget
for
the
Health
Sector
around
which
donors
can
provide
and
coordinate
support;
Establish
a
set
of
standards
and
accreditation
framework
for
the
private
sector
(pharmacies)
as
well
as
best
institutional
options
for
regulatory
enforcement;
Consider
piloting
sector
categorical
grants
for
health
care
provision
to
support
existing
intra-governmental
fiscal
transfers;
and,
Through
national
consultation
workshops
between
the
central
Ministry
and
Local
Government
agree
local
government
mandates
for
the
sector,
by
different
district
grades,
to
be
incorporated
into
revised
Law
23/2002.
68
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Final
Report
4.
HEALTH
SECTOR
ASSESSMENT
FINDINGS
4.1
INTRODUCTION
89. This
section
provides
evidence
through
an
on-the-ground
assessment
in
support
of
the
unbundling
of
the
health
sector,
and
is
the
product
of
21
days
at
the
center,
regional,
district
and
local
level
alongside
interviews
with
over
42
key
informants
representing
both
the
public
(MoH,
MoF,
UNICEF,
EU,
UNESCO,
UNP)
and
private
service
delivery
stream,
as
well
as
key
international
stakeholders.
The
analysis
and
proposed
approach
builds
on
the
existing
system,
the
draft
2011
National
Health
Policy
which
is
clear
in
its
commitment
to
decentralization,
the
2012-2016
NDP
and
Somaliland
EPHS,
draft
Human
Resource
Policy
and
Health
Professionals
Commission
Law
(Law
No.
19/2001)
among
other
key
documents
including
legislation
on
decentralization
and
local
government.
90. The
health
sector
is
one
of
the
core
services
provided
by
government,
NGOs
and
the
private
sector,
and
has
strong
connectivity
with
WASH
and
education
sectors.
Strong
investmentfrom
a
low
base
by
government
and
the
international
community
has
had
a
significant
impact
on
core
health
indicators.
According
to
the
NDP,
the
child
mortality
rate
in
Somalilandwhich
was
275
per
1,000
in
1990
dropped
to
188
in
1999
and
then
to
166
in
2006measured
against
global
standards
shows
a
very
steep
decrease.
These
figures
could
not
be
verified.
These
remarkable
achievements
could
be
attributed
to
many
factors,
including
an
improved
nutrition
status
and
heightened
public
awareness
of
the
benefits
of
child
vaccination.
Infant
mortality
rate,
which
is
the
number
of
deaths
per
1000
cohort
of
live
born
babies
before
the
first
birthday,
also
decreased
from
152
in
1990
to
113
in
1999
and
down
to
73
in
2006
in
Somaliland.
If
this
trend
continuous,
then
the
MDG
target
for
2015
is
most
likely
to
be
achieved.
This
assessment,
within
a
context
of
improving
health
provision
and
standards,
seeks
to
identify
the
preferred
service
delivery
model
and
to
identify
functional
assignments
across
the
multi-stakeholder
framework.10
Such
a
system
will
also
need
to
be
built
around
the
WHO
Health
System
Framework,
shown
in
Figure
13
below.
This
framework
outlines
the
system
building
block
and
the
overall
goals
and
outcomes
of
health
service
delivery;
public
and
private.
10
A
recent
paper
on
The
Impact
of
Decentralization
on
Health
Care
Programs
in
Less
Developed
Countries
states
that
the
basic
argument
for
decentralization
in
the
health
care
sector
is
that
local
organizations
are
in
the
best
position
to
respond
to
users
needs.
The
logic
is
that
by
making
the
delivery
of
health
services
part
of
local
administrators
responsibilities,
they
are
allowed
greater
flexibility,
efficiency,
and
accountability
in
resource
use.
(Wheeler,
2011)
69
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Report
91. The
degree
with
which
the
orderly
unbundling
of
health
service
assignments
can
be
driven
by
the
concept
of
decentralization
must
be
heavily
informed
by
an
understanding
of
local
government
capacities
and
fiscal
resources.
On
one
side
there
are
risks
of
pushing
for
decentralized
delivery
when
the
minimum
capacities
of
the
delivery
systems
are
still
under-developed.
On
the
other
side,
given
that
the
public
system
will
take
many
years
to
provide
comprehensive
primary,
secondary
and
tertiary
care,
there
are
strong
arguments
for
decentralizing
certain
assignments
to
strengthen
bottom-up
oversight
and
coordination
capacities
to
the
point
where
services
are
actually
delivered.
The
draft
2011
National
Health
Policy
is
clear
in
its
commitment
to
decentralization,
and
in
proposing
functional
assignments
for
key
structures.
Further,
with
many
production
functions
already
highly
decentralized
(private
sector
delivery
being
classified
as
decentralized
delivery)
a
focus
on
strengthening
sector
provision
functions
(management
of
policy,
planning,
budgeting,
execution
and
regulatory
oversight
and
monitoring)
at
the
central,
regional
and
district
levels
appears
justified.
The
draft
National
Health
Policy
describes
the
following
major
challenges
to
the
Health
System
in
Somaliland:
Health
providers
describe
difficult
and
demoralizing
working
conditions;
Huge
gaps
in
staffing
of
frontline
health
facilities
make
reliable,
quality
services
virtually
unattainable.
Some
clinics
stand
empty
while
others
are
overcrowded;
MoH
and
Agencies
are
having
difficulty
in
managing
the
rapid
decentralization
of
health
services
and
donor-driven
programs;
Shortages
of
equipment,
consumable
supplies
and
some
essential
drugs
undermine
facility
functioning,
damage
reputations,
inflate
out-of-pocket
costs
to
patients
and
fuel
a
spiral
of
distrust
and
alienation;
Exit
from
the
public
sector
into
an
unregulated
private
sector;
High
cost,
formal
and
informal,
but
disproportionately
borne
by
the
poor;
and,
Users
routinely
complain
of
abusive
and
humiliating
treatment
by
health
providers.11
92. Given
the
focus
on
the
existing
Law,
but
with
a
focus
on
the
proposed
(draft)
2011
National
Health
Policy
which
makes
clear
its
commitment
to
decentralization,
the
following
strategic
observations
are
therefore
madewith
implications
for
the
decentralization
of
functional
assignments:
Based
on
Articles
109,
110
and
112
of
the
2001
Constitution
governments
decentralization
of
Ministry
functions
commenced
in
2005,
however
as
the
existing
health
policy
does
not
reflect
this
approach,
a
new
Health
Policy
is
being
drafted
to
support
a
more
definitive
approach;
To
consolidate
and
deepen
the
ongoing
decentralization
process,
MoH
developed
the
EPHS
which
as
designed,
can
only
be
implemented
in
a
decentralized
system
of
governance;
The
current
functional
structure
of
MoH
and
the
decision-making
structures
across
the
four
tiers
of
health
care
delivery
(Primary
Health
Unit
(PHU),
Health
Center
(HC),
Referral
Health
Center
(RHC),
Hospital
and
community
health
structures)
requires
further
development;
In
the
draft
2011
Health
Policy
it
is
stated
that
decentralization
will
be
gradual
so
that
momentum
can
be
sustained;
and,
11
Current
data,
albeit
limited,
suggests
that
premature
mortality
rate
the
death
rate
in
the
045
age
group
is
significantly
high
in
Somaliland.
Male
mortality
exceeds
that
of
females
in
all
age
groups.
Maternal,
neonatal,
infant
and
child
mortality
are
equally
high.
Maternal
mortality
is
1200
per
100,000
live
births
and
life
expectancy
is
52.
Infant
mortality
is
90
per
1000
live
births.
Under-five
mortality
is
145
per
1000
live
births.
Full
immunization
levels
are
at
5%.
However,
sectoral
data
is
limited
and
a
census
needs
to
be
carried
out
in
order
to
identify
healthcare
needs
and
dictate
adequate
service
delivery
procedures
at
all
levels
of
healthcare
provision.
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Final
Report
Health
sector
financing
for
2011whilst
doubling
over
2010
allocationsis
only
3%
of
total
government
spending,
significantly
below
regional
spending
which
range
from
10-15%
of
national
expenditures.
4.2
HEALTH
SECTOR
SERVICE
DELIVERY
CAPABILITIES
4.2.1
MAIN
ACTORS
93. The
health
systems
in
Somaliland
is
composed
of
state
and
non-state
actors,
operating
across
all
three
tiers
of
state,
although
due
to
budgetary
constraints
state
service
delivery
remains
a
relatively
small
function
of
delivery,
with
the
sector
dominated
by
non-state
delivery
agents.
The
main
actors
of
the
current
health
care
system
are
therefore
split
between
state
and
non-state
providers.
The
four
tier
state
delivery
systems
is
constructed
as
follows:
State
Actors:
A
Central
MoH;
Regional
Health
Office
(RHO)
headed
by
a
Regional
Medical
Officer
(RMO),
with
a
proposal
to
establish
a
Regional
Health
Board
(RHB);12
A
District
Health
Office
(DHO)
(mostly
to
be
established)
headed
by
a
District
Medical
Officer
(DMO)
alongside
a
District
Health
Board
(DHB);13
The
proposed
health
policy
seeks
to
establish
two
state-owned
enterprises
National
Health
Professional
Council
(NHPC)
and
Somaliland
Drug
Authority
(SDA);
and,
Elected
District
Councils
and
their
administration,
although
according
to
the
District
Assessments,
whilst
district
administration
has
legislative
responsibilities
for
health
care
provision,
in
reality
there
is
no
health
department
or
personnel
and
the
sector
Ministry
therefore
delivers
health
services.
Non-state
actors:
The
Private
sector;
Non-governmental
organizations;
and,
International
donors
and
UN
Agencies.
94. The
functional
structure
of
how
the
main
actors
work
together
within
the
overall
public
and
private
health
systems
can
be
described
as
very
much
under-developed;
albeit
steadily
improving.
Public
health
structures
are
still
being
established
and
will
take
many
years
to
finance
and
build
core
capacities,
and
until
a
new
health
law
is
passed,
the
functional
assignments
of
the
overall
systems
do
not
adequately
reflect
the
needs
of
a
decentralized
system.
As
such,
NGOs
remain
largely
uncoordinated
and
unregulated,
risking
that
models
of
best
practice
are
not
replicated
across
the
wider
system
and
poorly
delivery
is
not
punished
either.
The
private
sector
(largely
pharmacies)
are
almost
completely
un-
regulated
as
are
drug
supplies.
RHOs,
RHBs,
DHOs
and
DHBs
are
not
operating
effectively
and
even
where
they
do,
they
lack
the
necessary
resources
to
fulfill
their
core
functions.
Still,
establishing
a
District-based
Health
System
in
the
context
of
the
EPHS
provides
for
a
number
of
entry
points
for
improved
governance,
around
which
the
key
actors
need
designated
functions
assignments.
Key
functional
structures
for
the
sector
are
summarized
below:
12
The
draft
Health
Policy
states
that
the
RMO
shall
be
a
public
health
medical
doctor,
appointed
by
MoH
and
reports
to
the
DG.
The
RMO
shall
have
line
functions
with
the
various
Directorates
of
the
MoH.
The
RMO
shall
have
authority
to
hire
and
fire
in
the
region,
and
make
necessary
transfers
as
deemed
fit.
13
The
DHO
shall
be
a
public
health
medical
doctor
or
senior
health
professional
with
public
health
training.
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Final
Report
Ministry
of
Health:
The
MoH
in
Hargeisa,
composed
of
Minister,
one
Deputy
Minister
(charged
with
policy
formulation,
advocacy
and
external
relations),
a
Directorate
General
and
six
Directorates
(Planning,
Human
Resource
Development,
Finance
and
Administration,
Health
Services,
Public
Health
and
Communicable
Diseases
Control)
has
linkages
to
sub-national
units.
There
is
approximately
2,040
staff
in
the
Central
Ministry,
100
qualified
active
Physicians
(public
and
private)
and
nearly
100
registered
midwives
(public
and
private).
A
National
Health
Professional
Council
operates
parallel
to
the
MoH,
whilst
a
National
Drug
Licensing
Authority
is
also
under
development;
Regional
Health
Structures:
RHBs
(in
each
region),
who
represent
the
community
and
oversee
the
regional
public
health
system,
are
headed
by
a
Regional
Health
Director/Officer
(one
per
region),
appointed
by
the
DG
of
MoH
reporting
directly
to
the
Director
General
and
whose
functions
mirror
the
six
functions
of
the
MoH
(see
Figure
14
below).
Health
Posts:
According
to
MoH,
the
Health
Post
(HP)
is
the
closest
facility
to
the
community.
It
serves
a
population
of
about
300
households,
which
means
a
population
of
about
2,000.
HPs
staffed
by
an
unsalaried
Community
Health
Worker
(CHW),
provides
basic
care
only
to
the
community.
The
CHW
is
paid
by
the
community;
quite
often
in
kind.
Referral
is
rather
difficult
because
of
the
distances
between
HP
and
the
Maternal
and
Child
Health
Center
(MCH).
Health
Facilities:
According
to
MoH,
in
2011,
there
are
approximately
287
public
health
facilities
throughout
the
country.
There
are
15
hospitals;
87
MCH;
and
165
HPs.
Many
of
the
Primary
Health
Care
facilities
are
not
functioning
to
their
maximum
capacity.
The
health
workers
work
fewer
hours
than
expected.
As
a
result
of
this
and
other
reasons,
the
community
has
lost
confidence
in
these
health
workers
and
do
not
attend
the
health
facilities.
Other
facilities
include
private
clinics,
consulting
rooms,
hospitals
(general
and
specialized),
pharmacies,
retail
drug
vendors
and
laboratories
(mostly
private).
Box
2:
District
Capacity
Assessment
Sample
Health
Findings
The
district
capacity
assessments
conducted
by
JPLG
provide
a
rich
understanding
of
the
current
functional
assignments
of
the
district
administration
offices
in
practice.
This
box
merely
provides
a
sense
of
current
administrative
provision
or
production
support
roles,
by
district,
which
have
different
grade
and
fiscal
potential,
for
doubtless
reflect
their
capacities
to
financed
production
and
provision
assignments:
Hargeisa
District
(Grade
A
District):
According
to
the
information
given
to
the
district
team,
the
administration
has
323
active
staff
members
in
13
departments;
although
there
is
no
department
of
health.
The
Mayor
stated
there
is
no
decentralization
within
this
service.
They
used
to
support
MCH
through
providing
funds
for
guards
and
water
but
they
no
longer
provide
this
support.
The
MoH
is
responsible
for
dealing
with
the
MCH.
They
are
also
sponsoring
20
students
to
take
a
public
health
diploma
so
the
level
of
skill
in
this
subject
within
the
municipality
will
increase.
They
also
work
with
MoH,
UNICEF,
and
WHO
on
this.
It
is
stated
that
the
table
of
night
shifts
of
pharmacies
and
MCH,
fire
fighting,
electricity,
water
and
petrol
stations
at
settlement
and
district
levels
is
prepared
by
the
Local
Government.
The
municipality
does
not
do
this
as
the
Mayor
stated
that
this
is
done
by
the
MoH.
Odweyne
District
(Grade
B
District):
The
district
administration
has
19
active
staff
members
in
three
departments:
Land,
Finance
and
Administration,
and
Revenue,
as
well
as
directly
under
the
Executive
Secretary,
thus
making
the
total
number
of
offices
analyzed
four.
For
health,
they
have
improved
the
fences
around
the
MCH;
however,
the
responsibility
for
these
centers
and
the
other
health
facilities
is
with
the
MoH.
The
MoH
is
represented
in
the
district,
along
with
four
other
Ministries.
All
the
representatives
and
the
district
authorities
meet
every
Thursday
but
they
usually
communicate
only
about
security
issues.
The
representatives
deal
with
service
delivery
by
themselves.
The
table
of
night
shifts
of
pharmacies
and
MCH
is
the
de
jure
responsibility
of
the
72
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on
Functional
Assignments
SOMALILAND
Final
Report
Box
2:
District
Capacity
Assessment
Sample
Health
Findings
Social
Affairs
Department,
and
is
therefore
prepared
by
Local
Government.
This
function
is
however
done
by
the
business
community;
since
most
of
the
population
know
each
other,
then
if
there
is
a
problem
they
are
able
to
assist
each
other.
The
district
general
works
and
land
department
also
designs
and
maintain
District
Council
buildings,
roads,
recreational
sites,
stadiums,
schools,
MCH
etc.
The
assessment
also
states
that
there
are
some
areas
where
there
is
no
expertise
within
the
district
such
as
town
planning,
engineering,
health,
and
education;
all
of
these
are
identified
in
the
department
breakdown
below.
Berbera
District
(Grade
A
District):
The
district
administration
has
275
active
staff
members
in
eleven
departments:
Transport,
Land,
Social
Affairs,
Audit,
Finance
and
Administration,
Revenue,
Personnel,
Health,
Planning,
ID,
and
Central
Archive
as
well
as
the
Executive
Secretary,
thus
making
the
total
number
of
offices
analyzed
twelve.
The
existence
of
a
health
department
is
rare
in
Somaliland
at
the
district
level.
The
local
government
is
responsible
for
the
promotion
and
care
of
the
social
welfare,
such
as
education,
health,
water,
electricity,
sanitation,
etc.
The
social
affairs
department
is
responsible
for
defining
the
responsibilities
of
the
municipality
on
health
and
education
and
ensure
that
there
is
the
necessary
expertise
available.
They
pay
for
the
cleaners
at
the
hospital.
The
table
of
night
shifts
of
pharmacies
and
health
centers,
fire
fighting,
electricity,
water
and
petrol
stations
at
settlement
and
district
levels
is
prepared
by
the
Local
Government.
The
municipality
does
not
do
this
as
the
Mayor
stated
that
everyone
knows
the
pharmacists
so
if
there
is
a
problem
they
go
to
their
houses.
Burao
District
(Grade
A
District):
Total
number
of
staff
not
citied.
The
district
provides
financial
support
for
the
district
hospitals
and
financial
support
for
the
MHz.
In
total
5%
of
municipal
finances
are
provided
to
support
hospital
operations
and
maintenance
and
the
municipality
provides
incentives
to
MCH
guards;
according
to
the
capacity
assessment.
Actual
health
service
delivery
is
under
the
MoH,
with
primary
services
being
provided
free
at
the
point
of
service.
Sources:
JPLG
Supported
District
Capacity
Assessments
(2011)
95. The
MoH
was
established
to
be
the
caretaker
of
health
and
well
being
of
the
people
of
Somaliland.
(MoH,
2011)
In
order
to
perform
these
duties,
MoH
currently
has
six
departments
as
follows
(i)
Planning
and
Policy
(ii)
Health
Services
(iii)
Public
Health
(iv)
Communicable
Disease
Control
(v)
Human
Resource
Development
and
(vi)
Finance
and
Administration.
Figure
14
below
provides
the
current
departmental
structure
of
the
MoH
based
on
this
original
vision,
which
show
a
clear
focus
on
Provision
Functions
not
delivery
per
se.
Current
functions
of
MoH
are
provided
below:
Policy
formulation;
Strategic
planning;
Resource
mobilization;
External
relations
(donor
coordination);
Legislation;
Financing
and
budgeting;
Inter-sectoral
collaboration;
and.
Performance
audit
of
the
health
services
in
the
region
(to
supervise
and
monitor
the
performance
of
the
Health
Board).
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Figure
14:
Current
Structure
of
Somaliland
MoH
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96. The
new
MoH
Policyif
implementedwould
however
change
the
functional
structure
of
the
MoH
from
six
to
four
directorates;
which
makes
ascribing
functional
assignments
complex.
Should
assignment
be
based
on
the
old
structure
which
is
based
around
provision
and
not
production
functions,
or
should
it
be
based
in
the
new
(un-approved)
structure
which
includes
production
functions
also?
Based
on
the
core
functions
of
MoH,
the
new
law
proposes
the
following
new
structure
of
the
Ministry:
In
addition
to
the
Executive
offices
there
will
be
four
directorates
(some
divided
into
divisions)
headed
by
the
Director
General:
Directorate
of
Policy,
Planning
&
Strategic
Information
Planning
Policy
Coordination
Health
Management
Information
System
(HMIS)
Monitoring
and
Evaluation
(M&E)
Research
Public
Relations
Medical
Infrastructure
and
Equipment
Directorate
of
Health
Services
Division
of
Infectious
Disease
Control
and
Surveillance
HIV/AID
Malaria
TB/Leprosy
Surveillance
Emergency
Preparedness
Environmental
Health
Division
of
Mother
and
Child
Health
Reproductive
health
Safe
motherhood
Child
Health
Expanded
Program
on
Immunization
(EPI)
Nutrition
Health
Communication
Division
of
Hospital
Management
Quality
Assurance
and
Private
Sector
Hospital
Care
Drugs,
Vaccines
and
consumables
Mental
Health
Disabilities
Nursing
and
Midwifery
Laboratory
Network
Oral
Health
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Directorate
of
Finance
&Administration
Budget
Accounts
Procurement
General
Administration
Personnel
Management
Procurement
and
Logistics
Directorate
of
Human
Resources
Management
Human
Resource
Management
(HRM)
Planning
and
Monitoring
Training
and
Capacity
Development
Continuous
Professional
Development
Post
graduate
Training
Department
Three
additional
offices
will
be
created
namely
-
Office
of
internal
Audit
who
will
report
to
the
Minister.
There
are
two
Parastatal
organizations
that
will
be
created
namely
(i)
NHPC
and
(ii)
the
SDA.
They
will
report
to
the
Minister.
4.2.2
SUB-SECTORS
97. The
health
sector
of
Somaliland,
is
presently
in
transition
from
a
predominantly
private
and
NGO
service
delivery
model
to
one
where
public
health
services
are
increasingly
part
of
the
overall
approach;
with
the
EPHS
as
the
model
around
which
such
gains
are
being
leveraged.
The
set
up
of
the
MoH
has
been
primarily
service-delivery
oriented,
but
DFID-financed
interventions
are
anticipated
to
strengthen
provision
functions
also,
including
(i)
planning,
(ii)
coordination
of
international
interventions,
(iii)
database
of
assistance,
(iv)
HMIS,
(v)
M&E,
(vi)
health
financing,
(vii)
human
resources
development,
and
(viii)
drugs
licensing,
testing
and
quality
control
(a
Diaspora
pharmacist
is
to
be
financed
by
MoH).
The
MoH
has
already
decentralized
some
of
its
functions
to
lower
levels,
particularly
management
of
secondary
care,
MCHs
and
primary
care
HPs.
In
essence,
the
health
system
of
Somaliland
might
be
seen
as
comprises
the
following
sub
sectors:
Subsector
1:
Public
healthcare
which
includes
(i)
MCH
(reproductive
healthcare
and
nutrition)
(ii)
Primary
and
Secondary
Health
Care
(free
by
law,
yet
charges
are
applied
to
certain
tertiary
services);
and,
(iii)
Hospital
Services;
Subsector
2:
Private
healthcare
the
private
sector
is
largely
unregulated,
whilst
legislation
is
being
developed
for
the
licensing
and
accreditation
of
health
professionals
in
the
private
sector
and
the
establishment
of
National
Health
Professional
Council;
and,
Subsector
3:
Pharmaceuticals
-
The
pharmaceutical
sector
is
also
unregulated,
with
the
MoH
monitoring
quality
control
of
imported
drugs
with
wholesalers;
the
establishment
of
a
drug
quality
control
laboratory
and
a
National
Pharmaceutical
Drug
Licensing
Authority
is
in
process.
98. The
DFID-sponsored
EPHS
initiative
(implemented
by
Health
Unlimited),
adopted
by
Somaliland
health
authorities
in
2009,
serves
as
a
framework
for
health
sector
development
based
on
10
priority
health
interventions.
The
EPHS
consists
of
the
following
(i)
four
levels
of
service
provision
(ii)
ten
health
76
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programs
and
(iii)
six
management
components
and
is
being
implemented
through
PHUs
(community),
HCs,
and
local
and
regional
hospitals,
with
overarching
support
for
nutrition.
Interventions
in
view
of
improving
service
provision
have
included
training
of
health
workers,
rebuilding
and/or
improving
health
clinics,
family
planning,
ante-natal
care
and
safe
delivery,
caring
for
newborns,
vaccinations,
prevention
and
treatment
of
pneumonia,
diarrhea,
malaria,
TB
and
AIDS,
as
well
as
screening
for
and
treating
malnutrition.
Providing
the
interventions
requires
support
to
the
six
components
of
the
WHO
Health
Systems
Strengthening
(HSS)
model.
In
addition,
UNICEF
supplies
of
kits
and
vaccines
to
compensate
for
lacking
resources,
among
other
support.
However,
persisting
financial
limitations,
inadequate
material
base
(infrastructure
and
equipment),
as
well
as
limited
staff
numbers
and
capacity
halt
the
ability
of
the
public
health
system
to
provide
services,
paralleled
with
a
relatively
stronger
private
sector.
99. The
MoH
has
clearly
struggled
to
fulfill
the
requirements
of
the
current
National
Health
Policy
for
reasons
largely
relating
to
lack
of
fiscal
and
human
resources.
The
functional
structure
of
the
Ministry
is
currently
in
transition,
and
a
new
National
Health
Policy
is
clear
in
the
role
of
district
level
delivery
systems
for
the
entire
system.
The
draft
policy
vision
is
for
all
the
citizens
of
Somaliland
to
attain
the
highest
quality
health
and
social
wellbeing
that
is
affordable,
accessible
and
equitably
distributed
throughout
the
country
and
delivered
through
the
District
based
health
system.
The
draft
mission
is
even
more
explicit
about
the
approach
to
be
adopted,
which
may
have
implications
for
sub-functions.
The
stated
mission
is
to
create
an
enabling
environment
for
the
provision
of
socially
acceptable,
affordable,
accessible,
equitably
distributed
minimum
package
of
quality
health
care
that
responds
to
the
need
of
the
community,
addressing
the
vulnerable
and
marginalized
population
and
delivered
in
a
sustainable
way
through
a
district
health
service
system
within
Somaliland
(MoH
Draft
2011
National
Health
Policy).
Under
the
draft
health
policy,
the
functions
outlined
in
Figure
15
below
would
form
policy
framework,
around
which
new
sub-functions
would
be
provided.
Figure
15:
Government
Health
Policy
Areas
Policy
Formulafon
&
Strategic
Planning
Performance
Audit
of
Health
Services
in
the
Region
(Supervise
Resource
and
Monitor
the
Mobilizafon
Health
Board)
Inter-sectoral
External
Relafons
Collaborafon
(Donor
Coordinafon)
Financing
and
Legislafon
Budgefng
Source:
Draft
National
Health
Policy
2011
100. As
it
is
at
a
stage
of
redefining
is
functions
and
service
delivery
model,
the
MoH
of
Somaliland
is
faced
with
two
scenarios
going
forward:
(i)
revert
to
its
former,
pre-independence
service
delivery
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model,
maintaining
its
role
as
a
service
provider;
or
(ii)
adopt
a
new
role,
as
a
steward
of
the
entire
health
system.
Stewardship
involves
setting
policies,
planning,
standards
and
service
delivery
models
as
well
as
regulatory
oversight
and
compliance,
but
not
necessarily
delivery
of
production
assignments.
The
latter
involves
partly
contracting
out
service
delivery,
whilst
overseeing
the
health
services
delivery
of
the
private
sector,
and
focusing
on
areas
such
as:
health
policy,
planning,
budgeting
coordination,
licensing
and
accreditation
of
health
workers,
training
and
qualification
of
staff,
oversight
and
coordination
of
international
assistance,
needs
assessment
and
assertion
of
minimum
standards,
development
of
health
financing
policies
(which
will
eventually
lead
not
only
to
a
sustainable
health
system,
but
also
one
in
which
essential
services
are
available
to
the
most
vulnerable),
ascertain
of
drugs
availability
and
quality
of
health
care
provision.
4.2.3
SERVICE
PRODUCTION
PROCEDURES
101. The
service
production
procedures
in
Somaliland
reflect
the
normal
primary,
secondary
and
tertiary
split
for
the
sector,
although
given
lack
of
fiscal
resources,
most
production
functions
to
date
are
not
delivered
by
the
public
sector,
but
by
the
private
sector
and
non-governmental
organizations.
As
previously
stated,
given
weak
fiscal
resources
and
the
high
burden
of
disease,
the
government
embraced
the
EPHSproviding
a
harmonized
and
integrated
approach
to
health
service
deliveryand
this
approach
is
gradually
being
rolled
out,
with
all
partners
supporting
the
MoH
complying
with
the
EPHS
implementation
framework,
guidelines
and
geographical
priorities
of
government.
With
government
also
deploying
its
own
resources,
the
EPHS
provides
a
comprehensive
(systems
wide)
approach
to
dealing
with
the
essential
health
care
needs.
The
EPHS
is
currently
operating
a
four-level
system
structured
as
follows,
according
to
the
draft
National
Health
Policy:
Primary
Health
Unit:
This
is
the
first
level
of
contact
that
the
community
has
with
the
formal
health
sector.
The
Community
Health
Committees
will
oversee
the
functions
of
the
PHU;
Health
Center:
This
is
the
first
level
referral
and
is
the
key
unit
where
all
the
core
programs
are
carried
out.
They
will
be
open
24
hours,
seven
days
a
week;
Referral
Health
Center:
This
is
the
apex
center
at
the
district
level
and
will
gradually
be
upgraded
up
to
the
level
of
a
district
hospital;
and,
Hospital:
These
are
regional
and/or
national
(specialist)
hospitals.
102. The
EPHS
is
laying
the
foundation
for
public
service
provision,
and
is
pioneering
(i)
four
levels
of
service
provision
(ii)
ten
health
programs
and
(iii)
six
central
management
components
across
the
entire
health
system.
EPHS
pilots
are
currently
being
rolled
out
in
the
Berbera
regional
hospital,
Sahil
region
(Health
Unlimited
through
DFID),
the
Burao
hospital,
Togdheer
region
(MSF
Belgium)
and
the
Ceerigaabo
hospital,
Sanaag
region
(MSF
Netherlands).
Because
of
the
weakness
of
public
sector
delivery
systems
at
the
district
level,
there
are
referral
health
centers,
with
management
and
supervision
functions
being
provided
at
the
regional
level.
So
far,
the
priority
is
on
enabling
the
regional
health
system,
and
in
future
phases
of
health
systems
development
a
district
management
structure
could
then
be
created;
with
options
outlined
for
such
an
approach.
The
EPHS
demands
a
full
complement
of
health
system
management
inputs
and
logistics
capacities
to
be
developed,
including
finance,
human
resource
management
and
development,
EPHS
coordination,
development
and
supervision,
community
participation,
health
systems
support
components
and
HMIS.
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Table
18:
Key
Figures
Across
Levels
of
Healthcare
Description
Number
Qualified,
active
Physicians
(public
&
private)
100
Registered
Midwives
(public
&
private)
100
Hospitals
15
Mother-Child
Healthcare
Centers
87
Health
Posts
165
Total
467
103. The
EPHS
provides
a
more
balanced
approach
to
public
healthcare,
and
now
constitutes
the
official
national
package
for
implementation
at
primary
care
level.
The
current
structural
components
(or
levels)
of
the
health
system
are
to
be
renamed,
and
their
functions
changed
(see
Table
19).
Table
19:
Anticipated
Structural
Changes
under
EPHS
Present
EPHS
Health
Post
(HP)
Primary
Health
Unit
(PHU)
Maternal
and
Child
Health
Centre
(MCH)
Health
Center
(HC)
District
Hospital
Referral
Health
Center
(RHC)
Regional
Hospital
Hospital
(H)
104. Rolling
out
the
EPHS
therefore
has
institutional
implications
and
the
current
functional
structures
of
the
health
system
is
being
restructured
around
the
new
policy
framework,
along
with
the
functional
mandates
of
regional
and
to
a
lesser
extent
district
vertical
and
horizontal
structure.
The
EPHS
component
of
the
wider
health
system
requires
three
functional
groups
for
its
delivery:
(i)
Health
facility
staff
(direct
facility
management)
(ii)
a
regional
health
office
(supervision
and
quality
of
care)
and
(iii)
community
health
committee
(oversight,
ownership
and
support).
Functional
mandates,
based
on
existing
regional
pilots,
are
provided
below
and
developed
in
greater
detail
subsequently:
Primary
Health
Unit:
The
PHU
is
staffed
by
at
least
one
trained
CHW
supported
by
an
elected,
representative
Community
Health
Committee
that
participates
in
responses
to
the
common
causes
of
ill
health
affecting
the
community.
The
functional
assignment
of
the
PHU
is
on
prevention
of
disease
and
promotion
of
health
through
nutrition
education,
health-seeking
behavior,
vaccination,
mosquito
nets
and
improvements
in
water
and
sanitation.
No
fees
are
charged
at
the
PHU.
Health
Center:
The
HC
is
the
key
unit
of
the
essential
package,
at
which
all
core
programs
are
carried
out.
It
is
the
first
level
at
which
obstetric
services
are
provided,
including
Ante
Natal
Care
(ANC)
and
facility-based
deliveries
with
qualified
midwives.
Minimum
staffing
consists
of
a
qualified
midwife,
qualified
nurse,
qualified
auxiliary
nurse
and
a
community
midwife.
As
well
as
maternity
beds
there
are
a
minimum
of
six
beds
for
24-hour
observation
of
sick
patients.
The
HC
is
to
be
staffed
with
a
Primary
Health
Officer
and
a
Community
Health
Committee
is
to
be
involved
in
management
and
local
fund
raising.
Core
programs
1-6
are
to
be
applied
at
the
HC
level.14
The
six
core
programs
include:
14
HCs
provide
outreach
support
services,
serving
as
a
referral
point
for
several
HPsthe
primary
level
of
public
healthcare
and
cover
a
population
of
approximately
5,000
people.
The
MCHs
receive
support
from
international
agencies
in
the
form
of
drug
kits,
vaccines,
fridges,
and
nutritional
supplements
(UNICEF).
While
these
additional
resources
are
much
needed,
lack
of
harmonization
and
coordination
between
donors,
international
agencies
and
recipients
undermines
the
effectiveness
of
this
support.
79
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1
Maternal,
reproductive
and
neonatal
health;15
2
Child
health;
3
Communicable
disease
surveillance
and
control,
including
WATSAN
promotion;
4
First
aid
and
care
of
critically
ill
and
injured;
5
Treatment
of
common
illness;
and
6
HIV,
STIs
and
TB.
Referral
Health
Center:
The
RHC
and
district
hospitals
carry
out
all
core
programs
outlined
above
and
additional
programs
(7-10)
for
treating
people
with
mental
illness,
chronic
disease
and
dental
and
eye
disease
via
outreach
visits
by
specialists
from
the
regional
level.
They
carry
out
comprehensive
emergency
obstetric
and
newborn
care,
with
the
capacity
for
carrying
out
caesarean
sections
and
safe
blood
transfusions.
The
surgical
facilities
also
allow
tubal
ligations
to
be
carried
out,
as
well
as
IUDs
and
implants
to
be
fitted.
They
have
at
least
eight
bed
maternity
wards
and
an
inpatient
facility
for
at
least
20
patients.
Staff
includes
at
least
two
midwives,
two
qualified
nurses
and
a
health/clinical
officer.
The
RHCs
will
have
a
Primary
Health
Officer
(nurse)
for
EPI
and
nutrition,
and
a
laboratory
technician.
RHCs
also
have
fridges
and
freezers,
acting
as
EPI
depots.
In
addition
to
the
six
core
programs
provided
by
the
HC,
the
RHC
also
provided
core
programs
7-10:
7
Management
of
chronic
and
other
diseases;
care
of
elderly
and
palliative
care;
8
Mental
health
and
mental
disability;
9
Dental
health;
and,
10
Eye
health
Hospital:
The
hospital
ensures
24-hour
quality
inpatient
referral
health
care,
with
qualified
nurses,
midwives
and
doctors
permanently
in
the
hospital.
Core
and
additional
programs
are
expanded
in
hospital
departments,
each
often
run
by
specialist
medical
and
nursing
practitioners
who
may
also
conduct
outreach
clinics
to
RHCs.
Management
is
the
task
of
a
hospital
administrator
(MBA
level)
overseen
by
the
hospital
director
and
the
RHO.
Health
Boards
are
responsible
for
mobilizing
funds
from
the
community,
business
enterprises,
the
Diaspora
and
other
sources.
MoH
and
municipal
authorities
also
proposed
to
contribute
to
hospital
fixed
and
variable
costs.
Regional
EPI
depots
ensure
regular
vaccine
supplies
to
the
districts
and
a
regional
medical
store
is
sited
separate
from
the
hospital,
and
eventually
the
EPI
depot
would
be
at
the
same
location.16
105. MoH
is
already
struggling
to
meet
both
provision
and
production
oversight
functions
covered
by
non-state
actors,
but
with
fiscal
resource
committed
to
the
sector
increasing,
the
roll
out
of
donor
support
EPHS
will
soon
provide
a
framework
for
public
health
provision.
However,
despite
such
a
clear
policy
focus
government
lacks
resources,
including
human
resource,
physical
infrastructure
and
15
MCH
centers
visited
by
the
team
in
Hargeisa
were
overwhelmingly
attended
by
women,
and
few
or
no
healthcare
centers
existed
for
follow-up
or
referral.
This
situation
in
Hargeisa
presents
a
fairly
representative
picture
of
the
MCH
scene
across
Somaliland.
MCH,
comprised
of
obstetric,
gynaecologic,
neonatal
and
paediatric
consultations,
and
typically
staffed
by
a
qualified
nurse,
midwife,
auxiliary
nurses
and
community
midwives,
is
the
first
professionally
staffed
port
of
call
of
the
health
system,
and
by
definition,
serves
only
specific
sectors
of
society
and
needs.
With
this
secondary
level
of
healthcare
catering
specifically
to
mothers
and
children,
those
falling
outside
of
these
categories,
including
men
and
the
elderly,
are
left
with
no
choice
but
to
travel
to
regional
hospitals
for
medical
attention.
This
presents
a
dire
situation,
particularly
given
the
levels
of
chronic
and
non-communicable
diseases
in
Somalia
including,
for
instance,
chronic
bronchitis,
hypertension,
asthma
and
diabetes.
16
In
terms
of
public
health
care
facilities,
there
are
regional
hospitals
in
each
of
the
six
regions,
as
well
as
seven
TB
hospitals
and
four
TB
centers.
Several
of
these
regional
hospitals
are
supported
by
international
organizations
as
they
carry
out
much-
needed
construction
and
renovation
work,
procure
drugs
and
medical
equipment,
train
the
local
staff,
and
move
towards
significantly
increasing
the
salaries
of
health
staff.
80
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SOMALILAND
Final
Report
equipment
and
drugs,
as
well
as
financial
resources
to
support
expedited
roll
out.
In
addition
to
limited
fiscal
resources
to
finance
free
access
to
primary
and
secondary
care,
inadequate
compensation
and
low
staff
morale
impact
standards
of
work.
106. While
the
Constitution
provides
for
free
healthcare
for
all,
in
practice,
this
is
currently
unaffordable
and
large
groups
of
people
either
pay
directly
or
go
without
service.
The
new
Health
Policy,
developed
with
technical
assistance
financed
by
DFID,
stipulates
that
while
the
first
and
the
second
level
of
health
care
will
remain
free,
the
third
levelthe
hospital
levelwill
increasingly
introduce
cost
recovery
measures.
In
addition,
the
draft
law
also
states
that
financing
will
be
actively
sought
from
international
donors,
the
Diaspora,
regional
and
district
communities,
and
specific
taxes.
Currently
however,
as
reflected
in
survey
results,
less
than
15%
of
the
rural
population
is
able
to
use
the
public
system
for
regular
complaints.
The
current
public
system
lacks
qualified
staff,
facilities
and
financial
resources.
Furthermore,
due
to
staffing
and
salary
levels
public
health
facilities
are
often
left
un-staffed
after
midday
as
medical
professionals
only
survive
through
their
private
practices.
Private
practices
are
therefore
essential
in
maintaining
quality
staff
within
the
overall
health
care
system.
4.2.3
SERVICE
PROVISION
PROCEDURES
107. Policy
and
strategy
development
has
improved
substantially
in
recent
years,
with
a
clear
policy
framework
developed
around
which
recasting
functional
assignments
will
be
possible.
DFID,
WHO
and
UNICEF
have
been
central
to
such
development.
Policy
and
strategy
development
is
very
much
a
joint
partnership
between
the
government
and
international
donors,
and
although
there
are
strategic
gaps,
the
gaps
are
being
closed
year-on-year
with
improved
support.
As
already
stated,
the
draft
National
Health
Policy
is
under
development,
and
is
aimed
at:
Increased
utilization
of
quality
health
services
especially
by
people
in
the
underserved
area,
by
improved
access
to
quality
and
responsive
health
services;
Strengthened
governance
and
management
in
health
sector;
Improved
institutional
mechanisms
for
community
participation
and
systems
for
accountability;
and,
Strengthened
financial
management
systems.
108. Recent
support
by
UNDP
is
focusing
on
local
government
financing
and
preparation
for
the
development
of
a
Medium
Term
Expenditure
Framework
for
the
core
sectors.
An
MTFF
has
already
been
established
and
recommendations
made
by
MoF
to
foster
a
better
form
of
fiscal
decentralization
that
removes
both
horizontal
and
vertical
fiscal
imbalances.
Within
the
proposed
MTFF,
conducting
bottom-up
costing
the
health
sector,
including
the
EPHS,
is
now
possible.
However,
given
that
government
financing
is
only
a
small
part
of
total
sector
financing,
sector
costing
will
need
to
report
historical
(actual)
and
future
(projected)
spending
on
and
off
budget.
In
terms
of
process
however,
once
the
budget
call
circular
is
released,
the
planning
and
administration
and
finance
departments
collect
costs
proposals
from
the
regions
and
districts
and
then
submit
a
consolidated
request
to
MoF.
Currently,
because
the
sector
has
not
been
fully
costed,
compelling
evidence
of
the
need
to
radically
increase
sector
allocations
through
the
budget
process
have
still
to
be
made.
4.2.4
OTHER
SERVICE
DELIVERY
OBSERVATIONS
109. The
private
sector
comprises
of
pharmacies
clinics,
laboratories
and
traditional
healers.
In
addition
to
the
healthcare
provided
by
the
four
public
sector
levels,
Somaliland
has
a
private
sector
of
pharmacies,
clinics,
laboratories
and
traditional
healers.
The
services
provided
by
the
private
sector
81
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SOMALILAND
Final
Report
compensate,
to
a
limited
extent,
for
the
fact
that
Somalilands
public
secondary
health
care
system
is
heavily
weighted
towards
obstetrics,
gynecology
and
pediatrics,
while
chronic
diseases,
non-infectious
diseases
are
under-served.
110. It
is
nearly
impossible
for
an
adult
male
to
get
secondary
care
in
the
public
sector.
Gender
bias
resulting
from
the
dominance
of
mother
and
child
healthcare
centers
at
the
secondary
level
of
public
healthcare
provision
accounts
in
part,
for
the
apparent
preferenceparticularly
amongst
menfor
the
private
pharmacy
as
a
first
port
of
call
for
medical
complaints.
Only
those
suffering
from
persisting
complaints
visit
the
regional
hospital.
One
explanation
offered
for
this
unequal
provision
of
healthcare
across
different
sectors
of
society
in
Somaliland
is
that
the
current
situation
is
a
supply
driven
reflection
of
the
mandates
of
financing
organizations,
rather
than
a
demand
driven
reflection
of
the
needs
of
the
health
customer.
There
is
no
quick
and
easy
solution
to
this
problem,
other
than
increasing
national
spending
on
health
or
using
donor
trust
funds
to
finance
health
care
delivery.
111. Drugs
are
provided
by
UNICEF
and
other
partners,
not
MoH,
and
packaged
as
drug
kits.
Kitsthe
selection
and
distribution
of
which
is
not
based
on
a
national
essential
drug
list
or
treatment
protocolsare
stored
in
the
central
medical
store
and
distributed
monthly
and
quarterly
to
the
regions
and
districts.
Drugs
distribution
to
the
peripheral
level
is
not
based
on
needs
and
utilization
rate
is
based
on
availability
and
affordability
(separate
fees
for
drugs
are
applied
at
hospitals).
Field
observations
have
suggested
that
HPs
and
MCHs
and
Private
pharmacies
have
sufficient
amount
of
drugs.
However,
expired
drugs
were
found
at
several
instances,
whilst
a
survey
with
several
pharmacies
has
demonstrated
a
high
proportion
of
counterfeit
drugs.
A
revolving
drug
supply
system
is
claimed
to
be
operational
in
the
Hargeisa
Group
hospital.
112.
A
national
drug
licensing
authority
is
under
development.
At
MoH,
a
Diaspora
pharmacist
is
reportedly
developing
treatment
protocols.
It
is
advisable
that
the
private
pharmacists
should
be
integrated
into
the
Human
Resources
for
Health
development.
Practitioners
need
training
in
a
rational
drug
use,
with
emphasis
on
diagnosis,
prescription
and
patient
compliance.
Pharmaceutical
storekeepers
need
training
in
utilization
rate
projection
and
store
keeping.
113. Human
Resource
Management
Information
System:
A
health
database
is
to
be
introduced,
paralleled
with
progress
under
the
HMIS.
However
the
HMIS
is
still
limited
due
to:
Lack
of
national
developed
priority
health
indicators;
Different
data
collection
systems
proliferated
by
vertical
programs
and
supporting
agencies;
Poor
quality
of
data
generated
at
service
delivery
providers
level
mostly
contributed
by
low
skill
level,
low
staff
morale
and
lack
of
data
use
at
collection
level;
(iv)
inadequate
use
of
available
data
by
MoH
at
all
levels;
Lack
of
proper
integration
with
other
systems
of
data
collection
in
place
(e.g.
Disease
Surveillance
system);
Lack
of
other
critical
sources
of
complementary
information
such
as
population
and
census
data
at
regional
and
lower
levels,
periodic
Demographic
and
Health
Survey
data,
and
research
data;
Lack
of
updated
MoH
policy
and
strategic
framework
to
guide
development
of
M&E
and
HMIS
policies;
and,
Lack
of
policy
and
regulatory
framework
to
include
private
sector
in
providing
periodic
service
statistics.17
17
Draft
National
Health
Policy
2011
82
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SOMALILAND
Final
Report
4.2.5
BUDGET:
EXTERNAL
AND
INTERNAL
SOURCES
OF
FUNDING
AND
POINTS
OF
ORIGIN
114. There
has
been
a
steady
increase
in
budget
allocation
for
the
health
sector
between
2006
and
2011
which
is
influencing
the
national
policy
to
aspire
to
more
than
provision
functions,
particularly
around
the
EPHS.
In
2009,
the
government
allocated
some
2.72%
(US$687,008.55
/
7,213,589,760
Sl.
Sh)
to
the
health
sector,
which
is
significantly
below
the
5-7%
average
allocation
to
health
in
many
East
African
countries.
In
2010
this
figure
was
a
higher
percentage
(2.83%
-
US$836,553.42
/
8,783,810,960
Sl.
Sh)
of
the
overall
National
budget
of
US$29,548,486.83
/
310,259,111,704
Sl.
Sh).
In
2011
the
appropriation
was
higher
again
(3.08%
-
US$1556647.48
/
16,344,798,559
Sl.
Sh)
of
a
total
budget.
Despite
the
steady
increase
in
government
spending
in
the
health
sector,
the
current
health
budget
is
still
well
short
of
the
15%
of
the
national
budget
targeted
by
2015,
pursuant
to
the
Abuja
declaration
of
2001.
The
sector
is
therefore
badly
under
financed
which
negatively
impacts
public
delivery
capabilities.
Table
20:
Somaliland
National
and
Health
Budgets
(2009-2011)
Grade
Grade
Region
Sahil
Region
Maroodi
Jeex
Awdal
(US$
Boroma
Burao
Burao
Salary
EPHS/DFID
EC
lot
3
scale
p.c.m.)
Incentive
Salary
Incentive
(US$
(US$
p.c.m.)
(US$
(US$
p.c.m.)
p.c.m.)
p.c.m.)
A
129
605
500
129
630
A
66
7
1034
B
105
410
250
105
265
B
54
6
463
B
105
230
250
105
258
B
54
5
359
C
54
210
170
81
125
B
54
4
292
C
54
155
150
81
125
B
54
3
246
C
54
145
150
47
115
C
42
3
202
D
47
70
80
47
115
C
42
1
170
D
25
50
80
25
115
D
25
1
187
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SOMALILAND
Final
Report
Grade
A
(Physician,
Director),
Grade
B
(Administrator,
Matron,
Midwife,
Nurse
in
charge,
Physiotherapist,
Lab
technician,
X
Ray
technician),
Grade
C
(Lab
technician,
X
Ray
Technician,
Auxiliary
nurse,
Lab
assistant,
auxiliary
midwife,
driver,
store
keeper,
cook),
Grade
D
(Cleaner,
guard)
116. Table
21
demonstrates
exiting
MoH
staff
salary
incentives/top-ups
and
grade
based
on
three
key
organizations
supporting
the
health
care
system
in
Somaliland.
According
to
the
MTFF
however,
government
is
looking
to
conduct
a
pay
a
grading
review
to
decompress
salaries
across
grades
to
attract
and
retain
staff.
Health
Unlimited
supports
four
MCHs
and
two
HPs
and
provides
incentives
for
43
A,
14
B,
17
C
and
20
D
grade
staff
in
the
Awdal
region.
COOPI
support
is
focused
in
Boroma
and
the
Annalena
TB
hospital
in
terms
of
10
A,
38
B,
38
C
and
35
D
grade
incentives.
MSF
Belgium
supports
71
staff
members
of
the
Burao
hospital
in
Toghdeer.
The
total
of
salary
top-ups
provided
by
these
organizations
in
just
three
sites
(Health
United
and
COOPI
are
active
in
other
sites
as
well)
exceeds
half
of
the
annual
budget
for
health
in
Somaliland.
Moreover
this
calculation
excludes
the
additional
support
in
terms
of
drugs
supply,
medical
equipment,
refurbishing,
repairs,
and
travel
and
human
resource
development
also
undertaken
by
these
organizations.
117. The
budget
figures
provided
above
exclude
off-budget
support,
which
remains
substantial.
Off-
budget
support
is
provided
by
provided
by
Merlin,
Handicap
International,
Hope,
PSI,
Concern,
Medair,
Mercy
Corps,
Zam
Zam
Foundation,
Islamic
Relief
and
the
Red
Cross
family
working
through
the
Somali
Red
Crescent
society.
They
also
exclude
financial
support
provided
by
donors
such
as
DFID,
the
EC,
UNICEF,
WHO
and
World
Vision
for
example.
A
conservative
estimation
would
suggest
that
at
least
half
of
the
work
force
in
the
health
sector
of
Somaliland
receives
a
salary
top-up
(4
to
20
times
the
salary)
by
one
of
these
organizations.
This
suggests
that
international
assistance
in
significantly
greater
than
GoS
financing,
implying
and
urgent
need
to
increase
harmonization
and
alignment
of
external
assistance
around
clearly
defined
service
delivery
models.
18
118. According
to
the
MTFF,
the
following
budget
ceilings
are
projected
for
MoH
from
2010-2013,
although
these
projections
are
based
on
significant
improvements
in
revenue
to
GDP
mobilization
in
the
years
ahead,
including
broadening
of
the
tax
base
and
limited
deficit
financing.
Table
22:
Projected
MTFF
Budget
Ceilings
for
MoH
(2010
2013)
2010
US$
2011
US$
2012
US$
2013
Sl.
US$
Sl.
Sh
Sl.
Sh
l.
Sh
Sh
(000)
(000)
(000)
(000)
Employee
5,875,686
1,022,391
12,492,196
2,173,690
21,643,015
3,765,967
32,464,522
5,648,951
Compensation
Goods
and
2,908,124
506,024
3,852,601
670,367
5,008,382
871,477
6,510,896
1,132,920
Services
Development
36,000,000
6,264,137
36,000,000
6,264,137
budget
HIV
Commission
379,488
66,032
654,751
113,929
879,864
153,099
1,202,195
209,168
Employee
153,829
26,766
362,572
63,089
543,859
94,633
815,788
141,950
Compensation
Goods
and
225,659
39,265
292,178
50,840
336,005
58,466
386,406
67,236
Services
Total
8,783,810
1,528,416
16,344,798
2,844,057
62,651,397
10,901,582
74,975,419
13,046,010
18
In
particular
the
penetration
of
UNICEF
blanket
distributions
of
Nutty
Butta,
vaccines,
fridges
and
medicine
kits
is
impressive.
It
reaches
every
visited
health
post
in
Somaliland
and
is
identified
in
every
field
assessment.
84
Study
on
Functional
Assignments
SOMALILAND
Final
Report
119. Given
the
need
to
massively
increase
financing
for
the
sector,
and
to
sustain
service
provision,
the
EPHS
is
being
financed
through
five
discrete
sources:
(i)
donor
financing
(via
contracts
with
implementing
agencies);
(ii)
contributions
from
the
regular
budget
of
the
central
MoH;
(iii)
contributions
from
municipal
or
district
authorities;
(iv)
community
health
and
(v)
user
fees
(at
hospital
level
only,
and
only
for
specific
services).
During
both
phases
I
and
II
of
EPHS
implementation,
donor
financing
will
therefore
comprise
the
majority
of
funding
for
the
public
sector
health
services
(see
table
below),
but
with
an
increasing
percentage
from
the
other
sources,
namely
national
government,
local
government
and
community.
Health
financing
traditionally
involves
the
basic
functions
of
collecting
revenue,
pooling
resources,
and
purchasing
goods
and
services
(WHO,
2000)
and
in
the
case
of
Somaliland,
given
large
off
budget
flows,
using
trust
funds
to
create
fungible
resources
will
be
critical
to
the
long
term
success
of
harmonized
and
aligned
delivery
system.
Moreover,
because
the
financing
of
production
functions
involves
complex
interactions
among
a
range
of
players
in
the
health
sector,
there
is
an
urgent
need
to
review
sector-financing
arrangements
across
these
five
sources,
with
a
focus
on
improving
the
alignment
and
harmonization
of
external
support
within
national
health
programs.
120. Proposals
for
strengthening
health
care
financing
need
to
be
derived
from
normative
public
finance
and
aid
management
approaches
as
they
have
been
developed
in
countries
in
transition,
with
a
strong
focus
on
linking
top-down
fiscal
(revenues)
planning
with
bottom-up
expenditure
costing
as
has
been
done
under
the
EPHS.
According
to
the
draft
national
health
policy,
financial,
as
well
as
human,
resources
are
inadequate,
and
Somaliland
depends
almost
entirely
on
external
sources
for
the
health
sector.
However,
as
no
full
sector
costing
has
been
undertaken,
no
aggregate
health
figures
exist.
In
April
2011
African
heads
of
States
and
Heads
of
Government
committed
their
countries
to
allocate
at
least
15%
of
the
national
budget
to
health
by
the
year
2015.
The
Somaliland
administration
currently
allocates
2.5%
to
3.0%
of
Somalilands
national
budget
to
the
health
sector.
This
mostly
goes
to
pay
salaries
and
basic
maintenance.
The
proposed
measures
to
be
adopted
in
Somalilandwhich
must
be
central
to
the
next
phase
of
development
for
the
health
system
therefore
include:
Increase
State
Financing
of
the
Health
System:
The
MoH
had
also
projected
a
need
for
additional
350
health
workers
per
year
from
2012
to
2013
and
this
will
also
add
around
Sl.
Sh13.1
billion
for
the
three
years.
Government
aims
to
provide
both
a
basic
and
essential
package
of
hospital
services
in
both
urban
and
rural
areas
and
full
immunization
coverage
in
all
districts.
It
also
aims
to
reduce
infant
and
maternal
mortality
rates
and
improve
prevention
and
treatment
for
infectious
diseases.
To
facilitate
this
development
the
Government
is
looking
to
raise
and
provide
a
development
budgetin
the
form
of
grant
or
loansof
US$6
million
for
the
annual
budget
in
2012,
and
US$6
million
for
the
annual
budget
in
2013
respectively;
Health
Financing
Policy
Development:
Somaliland
urgently
needs
a
comprehensive
health
sector
financing
policybuilding
on
the
EPHS
approachto
drive
finance
service
delivery,
and
to
enable
the
EPHS
to
be
sustained
as
the
major
driver
of
health
care
provision
over
the
medium
term.
Costing
the
sector
within
the
propose
MTFF
is
also
critical,
to
lock
in
budgetary
resources
and
increase
sector
financing
which
is
so
critical
to
raising
heath
standards
and
meeting
the
MDGs.
Support
for
improving
fiscal
decentralization
is
also
critical
to
making
sure
that
Class
A
to
Class
D
districts
are
provided
fiscal
resources
to
meet
their
legislated
obligations,
which
include
supporting
community
mobilization
and
financing;
Strengthening
district
allocations
from
the
divisible
fiscal
pool,
perhaps
also
piloting
sector
categorical
grants,
that
remove
vertical
and
horizontal
fiscal
imbalances.
Currently
the
fiscal
transfer
grant
program
has
a
number
of
inadequacies,
as
evidenced
by
the
variation
in
district
staff.
Some
Class
A
districts
have
an
establishment
of
250-300
staff
whereas
Class
C
and
D
districts
have
85
Study
on
Functional
Assignments
SOMALILAND
Final
Report
less
than
20
staff;
insufficient
to
meet
obligations
as
legislated
for
under
the
decentralization
law
of
2002.
The
current
fiscal
transfer
formula
needs
to
be
strengthened
to
remove
horizontal
imbalances.
Donor
trusts
funds
could
also
be
used
to
support
sector
categorical
grants
to
District
Councils
in
support
of
health
care
provision,
around
designated
functional
assignments;
Undertake
an
Assessment
of
District
Administration
Finances:
As
extending
the
EPHS
down
to
the
district
level
is
a
medium
term
objective,
it
is
vital
to
get
a
sense
of
long
term
revenue
mobilization
capacities
at
this
level
of
government,
as
understanding
fiscal
flows
will
be
vital
to
establishing
a
sustainable
health
care
system.
In
the
long
term,
sector
specific
categorical
grants
could
be
considered
for
the
District
Councils
to
undertake
specific
functional
assignments;
Undertake
Sector
Wide
Top-Down
and
Bottom-Up
Costing:
With
the
MTFF
established,
around
which
medium
term
budget
ceilings
are
set,
it
is
time
to
undertake
a
comprehensive
bottom-up
sector
costing
to
support
a
sector
MTEF
and
to
lock
in
resources
for
health
to
meet
state
vision
in
this
sector;
Cost
Sharing:
The
proposed
National
Health
Policy
proposes
the
adoption
of
cost-sharing.
The
policy
states
that
(i)
provision
of
free
health
services
to
all
mothers
and
children
at
the
primary
health
care
level
will
be
provided
(ii)
that
delivery
at
the
hospital
will
attract
a
charge
which
will
be
determined
after
a
thorough
assessment
has
been
made
of
all
the
health
facilities
and
(iii)
that
schemes
shall
be
developed
to
exempt
the
vulnerable
and
marginalized
indigents.
These
will
be
defined
in
the
context
of
Somaliland
at
the
community
level.
Trust
Fund
Management:
The
opportunities
soon
to
arise
under
the
Somaliland
Donor
Fund
Consultation
Process
being
financed
by
DANIDA
in
coordination
with
DFID
should
be
seized.
It
is
critical
to
establish
a
dedicated
trust
fund
for
financing
the
health
sector,
with
the
aim
of
pooling
fungible
resources
around
which
the
EPHS
in
particular
can
be
rolled
out.
The
proposed
service
model,
with
NGOs
playing
a
critical
role
in
substituting
public
sector
delivery
capacities,
and
given
the
need
for
the
roll
out
of
the
EPHS
not
to
be
constrained
by
fragmented
support,
such
an
arrangement
seems
critical.
Health
Insurance
Schemes:
For
many
income
groupsand
given
the
limited
footprint
of
free
state
servicesthe
affordability
of
health
services
is
frequently
beyond
the
purchasing
power
of
both
formal
and
informal
employees,
leading
to
significant
impacts
on
both
personal
and
social
health
fronts.
There
is
an
urgent
need
to
consider
viable
community
health
insurance
schemes,
for
community
members
who
need
services
that
are
not
provided
through
free
provision.
Figure
16
below
outlines
the
various
health
financing
channels
that
Somaliland
should
consider,
and
such
a
framework
could
be
usefully
piloted
at
the
district
level.
86
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Figure
16:
Financing
Flows
in
National
Health
Systems
19
Pursuant
to
the
Draft
National
Health
Plan
(2011),
Somaliland
continues
to
be
in
short
supply
of
qualified
health
professionals.
Currently
there
are
two
medical
schools,
five
Nursing
Schools
and
two
Schools
of
Midwifery.
The
total
enrolment
is
rather
low
for
the
demand
in
the
country.
Perhaps
an
area
where
the
country
needs
to
invest
in
would
be
in
production
of
medical
teachers
(as
they
are
also
in
short
supply)
-
a
determining
factor
for
the
size
of
student
enrolment.
Except
for
the
medical
colleges,
these
training
schools
have
not
been
accredited
as
the
NHPC
has
just
been
set
up.
The
graduates
have
not
been
registered
either,
although
Law
No
19
of
2001,
stipulates
that
all
medical
graduates
(medical,
dental,
nursing,
midwifery,
etc.)
will
be
registered
by
a
commission.
This
commission
(NHPC)
has
just
recently
been
set
up.
20
At
present,
there
is
an
urgent
need
for
more
physicians
to
cover
the
ground
level
of
the
MoH,
the
private
sector,
local
nongovernmental
organizations
and
international
organizations.
Furthermore,
training
of
MoH
staff
is
necessary,
as
is
the
improvement
of
quality
of
health
care
delivery
by
both
the
public
and
private
sector.
87
Study
on
Functional
Assignments
SOMALILAND
Final
Report
122. The
sector
remains
under-staffed
with
many
core
health
care
officials
and
workers
forced
into
other
income
sources,
which
detracts
substantially
from
the
service
provision.
The
Diaspora
is
well
trained
and
a
powerful
force
of
support.
However,
returns
from
the
Diaspora
to
support
further
system
development
are
unlikely
unless
motivated
by
donor
related
remuneration
packages.
Human
resources
are
the
center
of
the
entire
delivery
system
and
whilst
they
are
at
their
weakest
at
the
district
level;
both
central
and
regional
structures
need
to
benefit
from
a
workforce
development
strategy,
and
civil
service
reform
to
lay
out
a
career
path
for
health
professionals
and
better
terms
of
services,
as
can
be
provided.
However,
whilst
the
proposed
pay
and
grading
review
may
decompress
salaries
bringing
them
in
line
with
the
private
sector,
it
risks
further
undermining
O&M
and
capital
cost
financing.
123. Preferably
public
sector
salaries
would
be
derived
through
labor
market
surveys
around
which
comparator
wages
would
be
established;
and
these
are
linked
to
the
pay
and
grading
structure
of
government.
Such
structures
also
allow
for
career
progression,
which
is
critical
to
providing
an
incentive
framework
for
improved
delivery.
The
assessment
team
undertook
a
short
(unrepresentative)
market
survey
in
October
2011,
which
indicated
that
a
commercial
fixer
or
a
mid-level
UN
local
staff
member
receives
a
higher
salary
than
the
Minister
of
Health
of
Somaliland;
while
a
mid-level
local
NGO
staff
earns
below
that
level,
but
still
significantly
more
than
a
Deputy
Minister
of
Health
(Table
22).
Table
23:
Average
Salary
Ranges
in
Somaliland
88
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Shortages
of
equipment,
consumable
supplies
and
some
essential
drugs
undermine
facility
functioning,
damage
reputations,
inflate
out-of-pocket
costs
to
patients
and
fuel
a
spiral
of
distrust
and
alienation;
Exit
from
the
public
sector
into
an
unregulated
private
sector;
Catastrophic
cost,
formal
and
informal,
but
disproportionately
borne
by
the
poor;
and,
Users
routinely
complain
of
abusive
and
humiliating
treatment
by
health
providers
126. In
order
to
ensure
the
feasibility
of
further
health
sector
decentralization,
it
is
necessary
to
strengthen
Somalilands
local
governance
structures
in
view
of
improving
their
stewardship
functions.
This
short
capacity
assessment
is
structured
around
the
following
six
management
and
support
components:
Change
Management
and
Coordination:
Leading-change
management
and
coordination
skills
are
particularly
required
in
Somaliland
given
the
drive
to
restructure
the
current
Ministry
and
pioneer
EPHS
as
a
cornerstone
of
public
delivery.
Attracting
and
retaining
leadership
staff
is
critical
to
long-
term
development,
which
implies
establishing
a
career-based
system
that
meets
the
income
needs
of
qualified
professionals.
Given
the
focus
on
change-management,
a
communication
strategy
will
be
essential
to
guide
the
forward
process.
Health
Finance
Capacities:
Health
financing
skills
are
scarce,
as
are
policy
based
budget
management
skills.
Core
PFM
capacities
need
to
be
built,
as
do
fiscal
decentralization
arrangements
that
improve
cost-sharing
and
cost
recovery
agreements.
Recommendations
on
improving
health
financing
for
the
sector
as
a
whole
(see
the
Budget
and
Finance
Section
above)
also
need
to
be
considered,
and
given
the
level
of
off-budget
transfers
to
the
sector,
improved
aid
management
is
a
core
strategic
enabler
for
the
new
health
policy;
Human
resource
management
and
development:
HRM
skills
have
been
steadily
improving
but
there
is
obviously
substantial
headroom
for
future
improvement.
Performance
management,
contracting
and
attendance
are
key
issues
that
require
improvement.
In
addition,
the
academic
qualifications
of
staff
are
low
when
compared
to
requirements,
requiring
a
long-term
workforce
strategy
for
the
sector
to
be
adopted,
alongside
change
to
the
tertiary
education
system
to
deliver
qualified
young
professionals
into
this
critical
sector.
Options
for
modest
laterally
entry
programs
could
also
be
considered,
as
could
scholarships
and
dedicated
in-service
training
courses
in
core
skills
to
key
leadership
and
management
staff.
The
accreditation
and
licensing
of
workers
in
the
health
system
is
also
a
major
gap
which
needs
to
be
addressedin
accordance
with
Law
no.
19
of
2001and
standards
need
to
be
set
and
minimal
skill
levels
introduced
across
the
three
tiers
of
state.
Health
education
coordination
functions
are
absent
and
hence
core
curricula
need
to
be
developed
for
the
training
of
midwives,
nurses
and
laboratory
assistants,
alongside
strengthening
the
educational
institutions.
Per-service
and
in-service
training
plans
are
being
developed
for
the
EPHS.
The
THET
/
DFID
program
of
technical
assistance
to
the
Human
Resources
for
Health
Development,
which,
initiated
in
2011
is
getting
targets
highlighted
issues.
EPHS
coordination,
development
and
supervision:
EPHS
pilots
are
currently
being
rolled
out
in
the
Sahil,
Togdheer
and
Sanaag
regions.
The
current
model
of
support
being
provided
to
distinct
clinics
should
be
phased
out
of
in
favor
of
a
more
integrated,
regional,
health
system
oriented
approach,
in
which
each
region
has
one
supporting
organization,
responsible
not
only
for
the
HPs,
MCHs
and
hospitals,
but
also
for
the
regional
and
district
MoH
staff.
Training,
drugs
and
medical
equipment
89
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SOMALILAND
Final
Report
supply,
capacity
building,
rehabilitation
and
construction
of
health
centers,
mobility
and
vehicle
support
and
incentives
should
form
part
of
the
essential
package
of
support.
Community
participation:
Models
for
community
participationparticularly
around
the
Community
Health
Committeeswhich
must
include
strong
links
to
the
education
and
water
and
sanitation
sectors,
are
being
evolved
through
the
existing
system
and
the
EPHS.
The
community
committees
and
community
health
worker
are
intended
to
provide
oversight,
ownership
and
support
functions.
Community
health
works
need
further
support
to
fulfill
their
many
functions,
which
include
responsibility
for
surveillance
of
epidemic
disease
and
recordation
of
their
activities
at
this
first
level
of
the
HMIS.
In
addition,
as
there
is
no
School
Health
function
in
MoH,
links
with
supporting
sanitary
education
need
development.
Building
capacities
across
communities
through
participation
to
exercise
access
rights
and
contribute
to
financing
are
vital.
Health
systems
support
components:
Health
systems
support
components
are
designed
to
maximize
efficiency
throughout
the
health
care
system,
ensuring
that
sufficient
resources
are
available
for
actual
service
delivery.
Major
capacity
areas
to
be
improved
cover:
(i)
International
Development
Association
(IDA)
coordination,
monitoring
and
evaluation
capacity
at
central
and
also
at
regional
levels
(where
it
is
currently
lacking),
including
licensing
and
accreditation
of
international
assistance
and
health
workers
and
the
establishment
of
complete
database
of
international
assistance;
(ii)
health
planning,
including
improvement
of
the
quality
of
raw
demographic
data
and
information
on
health
care
delivery
needs
(via
census)
and
rationalization
of
MoH
information
streams,
data
collection,
reporting
and
accounting
of
health
care
interventions;
(iii)
health-
financing,
including
financing
for
non-communicable
diseases
(none
at
present);
(iv)
improving
accessibility
of
healthcare
through
the
development
of
sustainable
and
local
solutions
for
equitable
financing
of
health
care
and,
(iv)
strengthening
the
stewardship
(MoH
oversight)
in
the
pharmaceutical
sector,
including,
especially
via
the
development
of
drug-testing
laboratory
and
a
licensing
structure.
Management
information
system:
The
functioning
of
the
HMIS
system
is
critical
to
an
effective
and
well-managed
human
resource
system.
Under
the
EPHS
this
utilizes
a
simple,
efficient
and
accurate
HMIS
with
standardized
tools
and
protocols.
These
include
(i)
a
core
indicator
set
and
(ii)
standardized
HRM
management
tools;
fit
for
the
purpose.
Clearly,
the
development
of
core
training
modules
to
support
HRM
management
could
best
be
delivered
through
Training
Department,
and
the
Human
Resource
Unit
under
the
administration
and
finance
department.
4.2.8
KEY
LEGAL
AND
NORMATIVE
INSTRUMENTS
AND
THEIR
SIGNIFICANCE
FOR
SERVICE
DELIVERY
127. A
number
key
documents
exist
that
are
pertinent
to
the
health
sector
in
Somaliland,
each
of
which
is
outlined
in
Table
24
below
in
terms
of
provisions
relevant
to
the
this
study.
It
needs
to
be
noted
however
that
other
key
documents
including
the
government
MTFF,
plans
for
civil
service
reform,
budget
management
support
and
support
to
strengthen
municipal
finances
also
impact
the
sector.
90
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SOMALILAND
Final
Report
Table
24:
Somaliland
Legal/Normative
Instruments
and
MoH
Service
Delivery
91
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SOMALILAND
Final
Report
like
manner,
a
DHO
will
be
established
by
the
MoH
for
the
day-to-day
administration
of
the
districts
health
care
and
shall
be
headed
by
a
DHO.
The
DHO
shall
be
a
public
health
medical
doctor
or
senior
health
professional
with
public
health
training
and
appointed
by
the
MoH.
Sixth,
similar
to
the
RHB,
a
DHB
shall
be
established,
members
selected
locally
and
ratified
by
the
Hon.
Minister.
Finally,
regulation
of
health
profession
is
to
be
strengthened.
Government
has
the
mandate
to
protect
the
health
of
the
people
by
regulating
the
health
industry
through
registration
of
medical
graduates,
accreditation
of
health
training
institutions,
licensing
of
public
and
private
sector
health
facilities
and
ensuring
compliance
with
medical
ethics.
For
the
MoH,
this
will
be
done
through
the
National
Health
Professional
Council
(NHPC),
which
is
an
autonomous
regulatory
body.
The
2001
Constitution
provides
for
the
establishment
of
the
NHPC
under
Law
No
19
of
2001.
Membership
of
the
NHPC
Board
will
be
nominated
by
the
various
Medical
and
Allied
Medical
Associations
and
ratified
by
the
Hon.
Minister
of
Health.
For
the
day-to-day
administration
of
the
NHPC,
the
Hon.
Minister
of
Health
shall
appoint
an
Executive
Director
who
shall
be
a
senior
and
experienced
medical
doctor.
Essential
Package
of
Phase
I
of
the
EPHS
services
in
The
EPHS
has
major
implication
for
addressing
horizontal
and
vertical
delivery
imbalances
whilst
building
on
existing
Health
Services
Somaliland
seeks
to
transform
the
public
and
private
arrangements,
with
a
strong
community
focus
that
will
lead
to
a
fundamental
shift
in
the
organization
way
essential
health
services
are
and
management
of
delivery.
The
four-tier
system
works
well
for
the
center-regional-district
structure
of
state,
and
once
functional
assignments
have
been
clearly
established,
local
governments
role
in
supporting
a
bottom
up
approach
provided.
Not
only
does
the
EPHS
to
delivery
is
vital.
The
main
implications
for
this
assessment
include:
define
(i)
four
levels
of
service
A
clearly
defined,
objective
financing
and
coordination
model
that
delivers
essential
services,
within
existing
provision
(ii)
ten
health
programs
and
systems,
with
a
clear
financing
model
for
roll
out;
(iii)
six
core
management
Four
levels
of
service
for
the
public
system
support
around
which
limited
state
financing
resources
can
be
components,
in
providing
such
an
aligned,
to
maximize
impact
across
the
ten
program
areas;
approach
it
seeks
to
kick-start
Development
of
six
essential
management
and
support
functions
that
will
build
capacities
across
the
entire
current
public
provision
functions
delivery
system.
around
a
clearly
defined
four
tier
delivery
structure
(PHU,
HC,
RHC
and
H)
which
provides
the
foundation
for
consolidation
of
the
existing
system,
and
a
close
relationship
with
NGOs
and
community
groups
and
the
private
sector.
Somaliland
Non- The
Somaliland
NGO
Law,
was
According
to
the
NGO
law
an
International
NGO
is
required
to
inform
and
coordinate
its
activities
with
the
Government
Governmental
enacted
into
Law
on
February
the
2,
of
Somaliland,
informing
it
of
its
financial
situation,
seeking
affirmation
for
its
proposed
intervention
and
allowing
the
Organizations
Law
(Law
2010,
and
clearly
stipulates
the
need
government
of
Somaliland
vetting
of
the
staff.
The
Government
of
Somaliland,
therefore,
reserves
the
right
to
information
and
primacy
of
all
activities
on
its
soil.
This
law
requires
the
MoH
to
set
up
a
coordination
cell
and
start
No.
43/2010),
signed
to
regulate
non-government
coordinating
the
health
activities
on
a
Hargeisa
level
(currently
in
process).
A
Development
Assistance
Database
(DAD)
into
law
by
Presidential
organizational
activities,
both
has
been
developed
by
the
Ministry
of
Planning
and
distributed
to
INGOs
to
complete.
Furthermore,
at
central
level,
a
decree
No
82/112010)
national
and
international,
in
line
quarterly
national
health
and
nutrition
coordination
meeting
takes
place
and
brings
NGOs
to
dialogue
with
MoH
on
with
other
provisions
of
the
activities
completed
and
those
planned
for
the
next
quarters.
Somaliland
Constitution.
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Final
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4.3
MOH
ABILITY
TO
DELIVER
SERVICES
EFFECTIVELY
4.3.1
VERTICAL,
HORIZONTAL
AND
OTHER
SERVICE
DELIVERY
ARRANGEMENTS
128. Service
provision
occurs
at
all
four
levels,
and
includes
both
state
and
non-state
actors,
increasing
the
need
for
better
coordination
and
resource
management.
The
sector
used
to
be
heavily
fragmented
but
with
the
adoption
of
the
EPHS
as
the
cornerstone
of
the
new
health
system,
both
vertical
and
horizontal
delivery
structures,
mandates
and
functional
assignments
are
very
much
clearer.
However,
even
though
the
service
delivery
arrangements
for
the
system
are
improving,
the
sector
remains
heavily
under-financed
and
both
NGO
and
private
activities
remain
poorly
regulated.
129. The
organization
of
the
sector
itself,
across
the
four
layers
of
delivery,
is
well
defined
and
easy
to
understand.
What
is
lacking
is
the
capacity
at
all
levels
to
identify
a
clear
vision
for
the
sector,
to
costs
the
service
delivery
models
to
be
deployed
and
to
roll
out
the
EPHS
into
all
regions,
and
to
build
the
core
provision
capacities
to
support
sector
modernization
and
to
better
regulate
non-state
actors.
The
ongoing
re-organization
around
new
functional
mandates
also
puts
the
sector
in
a
state
of
flux,
and
fiscal
constraints
at
the
level
of
local
government
limit
the
implementation
of
decentralization
laws.
Moreover,
the
proposed
new
functional
structure
for
the
Ministry
shows
a
progressive
move
beyond
provision
to
production
functional
assignments,
providing
the
foundation
for
public
health
care
delivery.
Where
the
proposed
organizational
structure
for
the
MoH
appears
weak
is
in
the
following
areas:
Regulatory
standards,
oversight
and
enforcement
of
private
health
care
delivery
systems;
Aid
coordination
and
NGO
quality
and
practice
compliance
monitoring;
Clarity
on
the
role
of
vertical
sector
and
local
governments
in
health
care
management;
Service
delivery
agreements
between
the
sector
and
local
government;
Innovation
for
health
financing
and
health
insurance
schemes
for
non-state
employees;
and,
Functions
for
leading-change
management.
130. Outside
of
primary
health
care
provision
there
are
vertical
health
programs,
financed
by
the
international
community
that
by
and
large
circumvent
central
government;
and
these
programs
are
channeled
through
regional
and
district
structures.
There
is
also
substantial
investment
by
non-
government
organizations
that
maintain
health
clinics
and
other
facilities,
most
of
which
are
managed
independently
from
the
state
system.
Finally,
there
are
substantial
private
sector
delivery
capabilities,
largely
providing
pharmaceutical
services,
which
are
the
backbone
of
the
current
delivery
system.
131. Tracking
health
sector
financing
arrangements
over
the
course
of
the
past
decade
yields
significant
insights
into
de
facto
health
policy
in
practice
(See
Figure
17
below).
According
to
research
undertaken,
over
the
course
of
the
past
decade
(20002009)
the
majority
of
funding
(21%)
was
allocated
to
emergency
programs,
with
the
rest
distributed
between
TB,
HIV,
malaria
(15%),
primary
health
care
(14%),
nutrition
(13%),
the
polio
program
(12%)
and
health
system
strengthening
activities
(10%).
The
overall
funding
reflects
donors
preference
towards
vertical
rather
than
horizontal
programs
and
to
stemming
what
are
clearly
high
priority
health
related
concerns.
Whilst
these
are
understandable
given
the
need
to
meet
the
demands
on
the
ground
and
the
lack
of
state
delivery
systems,
and
also
reflect
humanitarian
budget
lines
which
are
often
easier
to
tap,
it
is
clear
that
as
the
capacity
of
the
government
increases,
and
its
role
matures,
the
nature
of
external
assistance
will
need
to
change
in
line
with
the
emerging
approach.
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132. Since
the
beginning
of
Somalilands
independence,
as
can
be
seen
from
the
macro-fiscal
analysis
provided
at
the
beginning
of
the
report,
government
finances
have
changed
dramatically.
The
draft
MTFF
provided
by
the
MoF,
which
needs
to
be
financed,
shows
a
considerable
planned
increase
in
state
health
sector
financing,
which
would
begin
to
balance
the
sector
across
public
and
private
spheres.
To
date
however,
the
current
mode
of
operation
of
the
central
MoH
has
necessarily
been
heavily
shaped
by
external
financing
and
the
complex
coordination
arrangements
that
emanate
out
of
Kenya
where
the
international
community
is
based.
Given
the
weak
fiscal
dispensation,
relations
between
the
central
(sector)
and
regional,
district
and
village
structures
of
delivery
have
been
undermined
by
lack
of
financial
flows
from
the
center,
which
have
also
undermined
loyalty
to
the
dictates
of
central
government.
133. International
Service
Provision:
International
support
for
the
health
sector
in
Somaliland
is
hugely
critical
to
meeting
national
and
international
MDG
targets.
In
addition
to
advisory
support,
the
international
community
also
runs
vertical
programs,
accounting
for
40%
of
overall
ODA.
21%
of
funding
for
horizontal
programs
is
allocated
for
emergency
programs,
with
only
10%
devoted
for
strengthening
the
health
system
(at
regional/district
rather
than
central
levels).
DFIDs
supportwhich
also
leads
the
THET
program
of
Human
Resources
Development
(HRD)rightly
focuses
in
the
EPHS
and
provides
for
maternal,
reproductive
and
neonatal
health
(including
safe
delivery,
family
planning
and
FGM)
and
child
health.
Actions
to
improve
the
provision
of
services
include
training
of
staff,
improving
health
clinics,
providing
family
planning,
ante
natal
care
and
safe
delivery,
caring
for
newborns,
giving
vaccinations,
preventing
and
treating
pneumonia,
diarrhea,
malaria,
TB
and
AIDS,
as
well
as
screening
for
and
treating
malnutrition.
Providing
the
interventions
requires
support
to
the
six
components
of
the
WHO
HSS
model.
134. Vertical
Program:
The
Polio
eradication
program
is
sponsored
by
several
international
donors,
and
is
jointly
coordinated
and
implemented
by
WHO
and
UNICEF.
Expanded
Program
on
Immunization:
Funding
for
EPI
has
been
stable
from
2009
onwards.
A
sharp
increase
in
immunizations
between
2008
and
2009
is
noted
due
to
the
implementation
of
child
health
days
campaigns
across
Somalia
by
UNICEF
and
WHO
in
partnership
with
local
authorities
and
NGOs.
The
child
health
days
package
includes
immunizing
every
under-five
child
against
measles,
polio,
diphtheria,
whooping
cough
and
tetanus,
in
addition
to
provision
of
Vitamin
A,
ORS
and
Aqua
tab
Water
Purification
Tablets
and
nutritional
screening
for
referral
of
malnourished
children
to
feeding
programs.
Women
of
childbearing
age
are
immunized
against
neonatal
tetanus.
Reproductive
Health:
Overall
investment
in
reproductive
health
remains
low
given
very
high
mortality
(1,400
per
100,000
women),
high
total
fertility
rate
(6.4%),
low
institutional
deliveries
(9%),
and
low
prevalence
of
modern
contraceptives
(1%)
(UNICEF
2010).
Funding
seems
insufficient
to
target
the
enormous
challenges
in
the
reproductive
health
area.
135. Nutrition
programs:
Malnutrition
is
a
major
public
health
problem
in
Somalia,
affecting
hundreds
of
thousands
of
children
and
severely
undermining
future
productivity,
long-term
economic
development,
and
poverty
reduction
in
the
country.
Malnutrition
rates
in
Somalia
rank
among
the
highest
in
the
world
and
call
for
a
significant
response,
as
funds
allocated
over
the
past
decade
(13%
of
total
aid
financing
to
Somalia)
do
not
seem
to
have
produced
tangible
results.
136. Emergency
programs:
Emergencies
programs
accounted
for
21%
of
all
financing
in
between
2000-
2009,
thus
being
the
number
one
category
to
be
financed
in
the
health
sector.
Many
activities
in
the
sector
are
conducted
in
emergency
mode
to
confront
the
consequences
of
either
natural
or
man-made
disasters.
Droughts,
floods,
conflict
and
mass
displacements
have
been
the
norm
in
the
past
decade.
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137. Horizontal
Programs:
The
category
horizontal
programs
bundles
financing
for
hospitals,
primary
health
care
and
health
system
strengthening.
Health
system
strengthening
is
a
code
provided
by
numerous
agencies
(e.g.
EU,
ECHO,
DFID,
Italian
Cooperation
and
the
GFATM)
to
support
an
array
of
issues
including
infrastructure,
human
resources,
equipment,
treatment
protocols
and
manuals,
as
well
as
training
and
development.
Financing
for
horizontal
programs
increased
four
fold
from
2000
to
2009
(source
World
Bank).
This
increase
in
absolute
terms,
however,
did
not
translate
in
an
increase
in
relative
weight
versus
other
programs
within
the
annual
overall
aid
envelope.
Financing
for
horizontal
programs
actually
decreased
from
37%
in
2000
to
33%
in
2009).
21
138. Local
Government
Support
for
Health:
Weak
local
revenue
mobilization,
particularly
for
Grade
C
and
D
Districts
have
meant
that
mandated
devolved
to
local
government
following
law
23/2002
simply
could
not
be
financed.
Where
the
revenue
base
of
districts
has
been
better,
district
administration
staff
include
an
establishment
of
up
to
300
people
or
more,
and
in
the
case
of
Berbera
District
(Grade
A
District),
it
has
established
a
Health
Department
as
it
had
the
finances
to
be
able
to
support
such
a
structure.
Where
districts
have
only
20-30
staff,
such
functional
structures
exist
on
paper
only.
The
only
way
to
strengthen
the
existing
fiscal
transfer
arrangements
from
central
government
to
local
government,
and
assess
options
for
establishing
sector
categorical
grants.
4.3.3
CURRENT
CAPACITY
TO
DELIVER
THE
SERVICES
REQUIRED
139. The
MoH
in
Somaliland
is
currently
not
functionally
strong
enough
to
cover
the
needs
of
the
health
sector.
Nevertheless,
progress
has
been
made
in
the
establishment
of
the
health
system
with
the
development
of
a
legal
basis
for
licensing
and
accreditation
of
health
workers,
by
prioritization
of
development
of
curriculum
and
functional
profiles
in
view
of
HRD,
as
well
as
the
initiation
of
discussion
on
national
health
policy,
facilitated
by
THET.
140. The
functional
capacities
of
state
structures
are
slowly
evolving
and
considerable
effort
will
be
required
over
the
course
of
the
next
decade
to
build
policy,
planning,
budgeting,
and
oversight
and
coordination
capacities.
Priority
actions
likely
include
agreeing
on
the
core
service
delivery
models,
costing
the
sector,
increasing
budget
allocations,
creating
standards
for
private
delivery
and
strengthening
enforcement
capacities.
In
many
areas
core
functions
are
either
absent
or
preformed
in
a
piecemeal
way,
and
this
includes
health
financing,
coordination
and
registration
of
International
Non
Governmental
Organizations
(INGOs),
licensing,
accreditation,
drug
quality
control,
health
legislation,
human
resources
planning,
health
planning
and
health
education.
A
number
of
major
shifts
are
required
to
allow
MoH
to
fulfill
its
mandated
functions,
and
these
include:
Providing
greater
support
for
strengthening
leadership,
management
and
coordination
capacities,
including
short
and
focused
study
tours
to
visit
regional
country
approaches,
in
Rwanda
and
Ethiopia,
in-service
training
etc.;
Shift
the
coordination
center
from
Kenya
to
Somalilandsequentiallyas
capacities
are
built
and
on-budget
sector
financing
is
increased;
Leverage
the
gains
being
made
in
formalizing
the
sector
through
the
EPHS
into
other
regions,
building
on
lessons
learned
in
Phase
I,
with
a
focus
on
strengthening
regional,
district
and
community
functional
capacities;
21
In
the
past
decade,
47%
of
all
financing
for
horizontal
programs
went
to
primary
health
care,
with
33%
to
hospital
care
and
20%
to
hospitals.
A
breakdown
of
expenditure
in
horizontal
programming
shows
that
the
largest
proportion
was
spent
on
salaries
(34%),
followed
by
supplies
and
equipment
(23%),
operating
costs
(20%),
training
and
capacity
building
(19%),
and
a
smaller
portion
to
guidelines
and
workshops
(3%).
Only
1%
was
allocated
to
Infrastructure.
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Progressively
formalize
the
EPHS
service
delivery
model,
bringing
NGOs
into
key
regional
and
district
level
roles,
as
a
vehicle
to
benefit
from
the
different
comparative
advantages
of
the
actors;
Find
a
way,
by
developing
essential
service
clusters,
grouping
health,
education
and
water
and
sanitation
support
programs,
within
a
strong
community
based
approach;
Strike
an
acceptable
balance
between
curative
and
preventive
care;
Progressively
move
towards
a
health
systems
approach,
to
balance
vertical
programming;
International
organizations
such
as
UNICEF,
WHO,
UNFPA,
the
EC,
the
World
Bank,
and
USAID
will
need
to
have
a
stronger
footprint
on
the
ground
to
support
the
deepening
of
the
current
approach;
and,
Other
capacity
building
support
measures
include
(i)
work
shadowing
(ii)
on
the
job
training
linked
to
specific
job
functions
and
deliverables
(iii)
expanding
opportunities
for
distance
learning
which
have
been
a
strong
source
of
professional
upgrading
(iv)
running
modular
capacity
building
in
the
form
of
a
series
of
practical
workshops
in
Somaliland
and
(v)
in-country
technical
support
to
work
with
and
support
senior
management
teams
in
carrying
out
their
duties
(Mentoring).
4.3.4
GENDER,
HUMAN
RIGHTS,
INSECURITY
AND
DROUGHT
IMPACT
ON
SERVICE
DELIVERY
141. Security:
Growing
insecurity
has
reduced
the
footprint
of
many
NGOs
and
has
limited
service
delivery.
Somaliland
appears
relatively
stable
and
secure,
which
offers
opportunities
for
improving
the
provision
of
health
services
even
in
contested
territories,
such
as
Sanaag
and
Sool.
Thus,
remaining
practices
of
remote
management
of
programming
and
lack
of
coordination
between
stakeholders,
due
to
security
considerations,
are
unjustifiable
and
new
approaches
should
be
sought
to
allow
for
exploiting
opportunities
for
straightening
the
health
system
in
Somaliland.
142. Gender:
In
terms
of
balanced
public
sector
staffing,
field
observations
indicate
that
in
Somaliland
female
personnel
staffs
both
traditional
lower
(midwives,
auxiliary
midwives
and
traditional
birth
attendants)
and
senior
roles
(physicians
in
charge,
hospital
directors
and
even
Vice-Minister).
This
offers
opportunities
for
further
gender
mainstreaming
in
the
health
sector.
However,
international
assistance
programming
should
be
cautious
in
applying
a
gender
bias,
as
is
the
case
with
UN
secondary
health
care
support,
which
currently
under-serves
male
population.
4.3.4
SUMMARY
TABLE
OF
EXISTING
AND
PROPOSED
FUNCTIONAL
ASSIGNMENTS
FOR
HEALTH
143. Table
25
below
provides
the
results
of
this
assessment
in
terms
of
sub-sector
production
and
service
functions,
and
present
and
future
implementation
modalities,
and
their
justification.
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Table
25:
Definition
of
Functional
Assignment
to
Different
Levels
of
Government:
Ministry
of
Health
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Table
25:
Definition
of
Functional
Assignment
to
Different
Levels
of
Government:
Ministry
of
Health
National
Starting
up
Not
done
Not
done
Not
done
National
Coordination
X
See
above
Drug
Drug
at
local
level
Licensing
Licensing
information
Authority
Authority
of
central
level
Health
Primary
Some
training
Regions
fully
Standards
Regions
fully
X
One
region
Services
Health
Care
autonomous
setting
autonomous.
one
partner
M&E,
stronger
oversight
and
licensing
MCH
Little
control
I
Central
Local
X
or
information
standards
implementati
setting
on
Hospital
No
control
or
Central
Local
X
Services
information
standards
implementati
setting
on
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Table
25:
Definition
of
Functional
Assignment
to
Different
Levels
of
Government:
Ministry
of
Health
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4.4
PROPOSED
UNBUNDLING
APPROACH
144. The
proposed
approach
to
unbundling
the
sector
is
heavily
influenced
by
the
EPHS
four
level
functional
structure,
the
draft
National
Health
Policy
and
shifting
balanced
from
provision
to
production
functions
(see
the
review
of
assignments
discussed
with
MoH
above
and
in
section
4.6
below).
According
to
the
draft
national
health
policy,
the
focus
of
future
investment
includes
the
formulation,
updating
and
dissemination
of
laws,
regulations
and
design
of
enforcement
mechanisms
related
to
the
following:
The
development
and
management
of
the
national
health
system
(National
Health
Act);
A
strong
focus
on
decentralized
service
deliverywithin
the
framework
of
the
EPHSgiven
the
central
focus
of
PHs
as
the
primary
point
of
contact,
and
their
linkage
with
HCs,
RHCs
and
hospitals;
plus
sector
specific
categorical
grants;
The
registration,
manufacture,
importation,
storage,
sale,
distribution
and
dispensing
of
pharmaceuticals,
vaccines,
health
equipment
and
appliances,
and
other
medical
supplies;
The
control
of
public
advertising
with
negative
impact
on
health
and
health
care,
e.g.
Smoking;
Stigmatization
and
denial
due
to
ill-health
or
incapacity;
and,
Law
enforcing
the
National
Health
Policy
and
other
relevant
provisions.
145. Whilst
the
EPHS
is
a
central
focus
of
the
new
Health
Policy,
and
given
that
this
policy
has
assigned
functional
mandates
across
the
four
layers
of
delivery,
any
sector
unbundling
must
be
in
line
with
this
approach
to
a
large
extent.
In
other
areas,
where
coordination
of
international
cooperation
partners
and
NGOs
is
required,
as
well
as
where
oversight
and
enforcement
of
the
private
sector
requires
considerable
strengthening,
the
location
of
provision
functions
must
be
clearly
defined.
In
this
regard
regional
offices
play
a
critical
role.
Furthermore,
given
that
lack
of
fiscal
resources
are
limiting
the
expansion
of
the
existing
system,
that
there
are
five
key
sources
of
financing
for
the
current
model,
any
unbundling
of
the
sector
must
breath
seek
to
maximize
the
mobilization
of
financial
resources
at
the
district
level
in
particular.
Key
strategic
observations
with
implications
for
unbundling
are
as
follows:
The
new
draft
Health
Policy
and
ongoing
functional
restructuring
of
MoH
provides
significant
opportunities
for
clarifying
functional
assignments
within
new
structures,
across
the
three
tiers
of
government
and
the
four
layers
of
the
existing
health
services;
Given
that
the
EPHS
largely
defines
the
functional
assignments
across
the
entire
health
system,
starting
with
district
level
primary
care
and
an
upstream
referral
system,
and
the
proposed
functional
structure
of
the
MoH,
the
main
role
of
local
government
is
likely
to
be
best
focused
on
financing,
bottom-up
oversight,
enforcement
and
coordination
functions
only;
Any
system
must
be
built
from
the
bottom-up
and
top-down,
building
from
PHUs,
to
the
HCs,
the
referral
health
centers
and
to
hospitals;
Given
the
primary
role
played
by
the
private
sector,
as
the
de
facto
back-bone
of
the
current
system,
yet
the
risks
of
poorly
regulated
health
practices,
regulatory
oversight
and
compliance
capacities
need
to
be
urgently
established;
Given
the
weak
financial
and
human
resources
in
Grade
C
and
D
districts
in
particular,
any
unbundling
needs
to
anticipate
the
weak
capacity
in
certain
district
and
investments
therefore
need
to
be
calibrated
accordingly;
The
particular
focus
on
how
to
deliver
services
to
the
socially
excluded
must
be
central
to
the
health
policy;
alongside
commitment
to
clustering
health,
education
and
water
and
sanitation
services
to
maximize
monopolies
of
collective
provision;
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Health
financing,
improved
budget
formulation
and
execution
capacities
and
aid
management
must
be
forged
from
the
center
to
the
regions;
Building
the
six
management
functions
of
the
EPHS
is
a
priority,
but
this
needs
to
be
supplemented
by
investment
in
leadership,
management
and
coordination
training
of
senior
cadre
within
the
current
system;
Costing
the
sector,
setting
services
delivery
baselines
by
coverage
and
catchment
populations,
as
well
as
establishing
sector
financing
arrangements
to
make
external
resource
fungible
to
the
priorities
established
within
the
2011-2015
Health
Strategic
Framework
is
vital
to
support
the
harmonization
and
alignment
of
international
support,
whilst
encouraging
greater
government
ownership
and
responsibility.
The
proposed
trust
fund
for
Somaliland
would
present
such
an
opportunity;
and,
Developing
viable
pilots
to
meet
the
health
needs
of
nomadic
communities
who
are
ipso
facto
excluded
from
state,
NGO
and
private
sector
outreach.
146. In
unbundling
the
production
and
provision
functions,
greater
clarity
regarding
the
functional
assignments
of
central,
regional,
district
and
community
levels
has
become
clear,
as
has
the
reasons
that
local
governments
are
often
unable
to
meet
the
functions
as
outlined
in
Law
No.
23/2002.
Moreover,
given
that
the
EPHS
has
already
been
established
around
(i)
four
levels
of
service
provision
(ii)
ten
health
programs
and
(iii)
six
management
components,
and
given
that
the
main
functional
assignments
in
support
of
this
cornerstone
policy
have
already
been
clearly
defined,
then
the
proposed
unbundling
of
functions
must
build
on
this
framework
whilst
also
strengthening
policy,
planning,
budgeting/financing,
regulatory
and
oversight
capacities
at
the
center
and
regional
levels.
Given
the
ongoing
functional
restructuring,
a
leading-change
management
framework
is
also
needed,
that
builds
senior
leadership
capacities
in
the
public
sector,
around
the
new
service
delivery
model.
4.6
REVIEW
OF
FUNCTIONAL
ASSIGNMENTS
147. Table
25
above
reviews
the
functional
assignments
for
the
MoH
based
on
discussion
with
MoH
Staff.
Clearly,
there
are
four
functional
systems
to
be
considered:
The
vertical
MoH
provision
and
limited
production
assignments;
The
four-tier
EPHS
system
which
provides
primary
care
as
part
of
the
wider
system;
The
District
Council
assignments
which
are
poorly
defined
in
Law
23/2002;
and,
The
private
sector.
148. Table
25
below
provides
a
summary
of
proposed
functional
assignments
across
the
current
service
delivery
framework
for
these
four
categories,
building
on
the
emerging
system
and
practices,
which
could
be
further
developed
and
reflected
in
the
draft
National
Health
Policy.
This
allocation
of
proposed
functions,
builds
on
the
results
of
Table
26
above,
as
the
basis
for
creating
clarity
of
mandate.
This
framework
would
need
to
be
discussed
and
further
disaggregated
by
core
service
delivery
stakeholders,
once
service
delivery
models
have
been
established.
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Table
26:
Possible
Health
Production
and
Provision
Assignments
for
Somaliland
Types
of
Decision-Making
Upstream
Functions
Downstream
Function
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Final
Report
Table
26:
Possible
Health
Production
and
Provision
Assignments
for
Somaliland
Types
of
Decision-Making
Upstream
Functions
Downstream
Function
framework
Pharmaceutics
- Policy
and
regulatory
standards;
- Regulatory
oversight
and
standards
- Accreditation
and
certification;
enforcement
- Import
licenses
- School
supply
- Standards
enforcement
Regional
Health
Coordination
- Coordination
of
regional
hospitals
- Coordination
of
community
health
Unit
- Coordination
of
district
health
services
services
Public
Health
- Promotes
public
health
system
- Promotes
public
health
system
- Sets
state
public
health
policies
and
- Sets
state
public
health
policies
and
plans
plans
Gender
- Sets
standards
against
gender
- Combat
gender
based
violence
discrimination
and
gender
based
- Application
of
gender
based
violence
recruitment
policies
- Balanced
work
force
- HRIS
reporting
Private
Sector
- Sets
rules
and
regulations
- Oversight
- Taxation
- Regulation
- Oversight,
compliance
and
- Standards
enforcement
complaints
- Legal
action
Aid
Management
- Aid
management
and
coordination
- Coordinated
district
level
and
system
development
community
based
NGOs
ADDITIONAL
ADJUSTMENTS
TO
PROVISION
AND
PRODUCTIONS
FUNCTIONS
149. In
addition
to
the
proposed
investments
to
strengthen
the
provision
functions
of
central
and
regional
structures,
this
study
identifies
a
number
of
additional
adjustments
required
to
strengthening
health
systems
around
the
core
functions.
These
include,
but
are
not
limited
to:
Need
for
significant
percentile
increases
in
health
sector
spending
towards
to
8-10%
range;
A
donor
trust
fund
must
be
established
to
defragment
and
de-projectize
donor
support
to
the
sector;
Need
to
undertake
a
full
costing
of
the
health
sector,
within
the
new
MTFF
produced
by
MoF,
around
which
sector
financing
and
expenditure
plans
be
established
and
the
EPHS
progressively
rolled
out;
Need
to
urgently
cost
the
EPHS
roll
out
to
all
regions,
as
a
means
to
increase
state
financing
and
ring-fence
external
donor
support;
Whilst
identifying
a
lead
donor
for
the
health
sector
may
be
difficult,
it
was
achieved
in
Afghanistan
(the
assessment
team
led
the
original
aid
management
framework
in
Afghanistan
with
lead
donors
determined
by
level
of
financial
support).
Options
should
be
explored
with
the
MoF;
Screening
of
national
and
international
NGOs
in
regions
not
covered
by
the
EPHS,
with
a
view
to
laying
the
foundation
for
future
roll
out;
and,
Consideration
be
given
for
graduating
EPHS
health
kits,
over
time,
to
include
non-essential
items.
4.6
HEALTH
SECTOR
PROPOSED
NEXT
STEPS
150. With
such
limited
public
sector
financing
for
the
sector,
and
with
the
EPHS
providing
a
strong
framework
for
primary
delivery,
through
even
this
needs
to
be
rolled
out
in
to
new
regions,
the
key
role
of
the
MoH
should
be
in
directing
policy,
undertaking
sector
planning
(which
involves
regional
104
Study
on
Functional
Assignments
SOMALILAND
Final
Report
and
district
structures),
in
budgeting
and
regulatory
oversight
and
enforcement.
Despite
significant
gains
and
Governments
commitment
to
place
health
at
the
top
of
the
NDS
priority
list,
a
number
of
other
high
priority
steps
need
to
be
undertaken
over
the
course
of
the
next
2-5
years.
These
include:
The
2001
National
Health
Policy
needs
to
be
clear
(which
it
is
not)
as
to
the
roles
of
the
MoH
and
local
governments;
In
the
validation
workshop
H.E
the
Minister
of
Health
agreed
that
the
2011
National
Health
Policy
needs
to
be
clear
on
the
role
of
Local
Government
from
a
functional
assignment
point
of
view,
and
that
local
governments
should
adopt
a
percentage
rule
for
support
the
health
sector.
A
collaborative
discussion
therefore
needs
to
take
place
between
the
Ministry
of
Health
(MoH),
Ministry
of
Interior
(MoI)
and
Local
Governments
to
agree
functional
assignments
and
how
best
to
consolidate
central
and
local
government
finances.
A
set
of
guide
functional
assignments
are
outlined
here
to
assist
government
in
such
deliberation;
In
relation
to
health
service
provision,
Law
23/2002
needs
to
be
revised
to
remove
ambiguities
in
relation
to
health
functional
assignments,
with
clear
functions
being
allocated
between
the
sector
and
LG
based
on
a
cost-sharing
arrangement;
to
be
formalized
in
due
course.
Grade
A
districts
have
built
up
Social
Service
Directorates
and
Berbera
has
established
a
small
health
department,
and
increases
in
local
government
revenues
in
recent
years
no
calls
for
the
formalization
of
health
care
financing
between
the
two
entities;
Local
Governments
appear
committed
to
determining
the
cost
basis
for
LG
support
to
the
sector,
with
a
number
of
heads
of
LG
hinting
at
a
5-6%
budget
rule
for
the
sector.
Such
a
move
could
be
supported
by
reciprocity
from
central
government
and
pooled
financing
approaches
developed,
to
include
financial
flows
from
the
District
Development
Fund;
It
seems
logical
to
move
progressively
towards
a
functional
(policy
and
program
based)
health
budget
around
which
donors
can
provide
and
coordinate
support;
Rolling
out
of
the
Essential
Package
of
Health
Services
(EPHS),
the
district
model,
is
perhaps
the
main
priority
for
the
sector,
and
target
districts
(including
in
Sahil
and
Togdheer
regions)
for
Phase
I
roll
out
would
need
to
be
agreed,
alongside
drives
to
improve
regulatory
oversight
of
the
private
sector,
which
remains
the
backbone
of
the
current
service
delivery
arrangement;
Successful
piloting
will
require
that
selected
districts
have
the
minimum
capacities
(fiscal
and
human
resourcing)
to
sustain
their
involvement
in
delivery,
implying
an
initial
focus
on
Grade
A
districts,
where
fiscal
resources
support
such
an
outcome.
However,
given
the
need
to
extend
service
delivery
out
into
Grade
B,
C
and
D
districts,
pilots
will
need
to
be
carefully
developed
reflective
of
the
lower
capacities
at
the
this
level
of
LG.
Ideally,
fiscal
imbalances
will
be
progressively
removed
and
consolidated
LG
budgeting
developed,
to
widen
the
resource
base,
including
linkages
with
the
district
development
fund;
It
seems
logical
to
consider
piloting
sector
categorical
grants
for
health
care
provision.
The
aim
would
be
to
review
the
main
funding
channels
(central
government,
local
government,
donor
trusts
funds,
the
District
Development
Fund)
and
to
see
how
targeted
health
sector
grants
from
donor
trusts
funds
can
be
used
to
support
strengthening
of
district
level
provision;
Establish
and
cost
a
service
delivery
baseline
and
set
budget
ceilings
for
3-5
years
based
on
a
MTEF
including
wage
and
non-wage
recurrent
costs,
operations
and
maintenance
and
capital
105
Study
on
Functional
Assignments
SOMALILAND
Final
Report
investments,
but
to
include
non-MoH
resources
made
available
through
local
government
consolidated
budgeting;
and,
Establish
a
set
of
standards
and
accreditation
framework
for
the
private
sector
(pharmacies)
as
well
as
best
institutional
options
for
regulatory
enforcement.
106
Study
on
Functional
Assignments
SOMALILAND
Final
Report
-5-
WASH Sector
Assessment Findings
107
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Have
no
role
in
contracting
out
with
the
private
sector,
neither
in
monitoring.
They
provide
some
basic
service
for
Solid
Waste
Management.
Hygiene
promotion
activities,
while
being
under
their
remit,
are
carried
out
without
proper
planning
and
generally
omit
addressing
the
IDP
and
nomadic
population.
9. Village-Community
Bodies
Water
Committees
are
entirely
voluntary
structures,
in
charge,
by
the
community
(not
the
law)
to
administer
water
supply
facilities.
In
practice,
they
only
can
intervene
in
emergency
cases,
mainly
serving
as
conduit
of
complaints
from
the
community
to
NGOs/INGOs
for
assistance.
While
Village
Councils
are
partaking
in
District
Council
meetings,
their
role
is
simply
to
transmit
complaints
regarding
public
services,
including
WASH.
10. Private
Sector
Participation
in
Service
Delivery
Engaged
through
the
MMEWR,
the
so-called
Water
Agencies
operate
the
water
supply
network
systems
on
the
basis
of
a
hybrid
contract
between
lease
and
concession,
that
creates
serious
ambiguities,
especially
regarding
asset
ownership.
They
invest
part
of
their
revenues
to
build
infrastructure,
as
per
contract.
However,
they
lack
rigorous
financial
control
by
the
Government.
Serve
mainly
urban
areas
(estimated
40%
of
urban
population).
Level
of
service
is
substantially
better
compared
to
the
service
provision
of
alternatives
mentioned
above.
Operates
in
absence
of
proper
regulation
and
virtually
no
monitoring.
Prices
charged
are
abnormally
high,
but
accepted
by
MMEWR.
Another
concern
is
the
usage
of
water
resources
(all
are
either
deep
or
shallow
wells,
or
Berkhads),
leading
to
depletion
of
resources.
There
is
no
provision
for
wastewater
services.
Very
weak
evidence
of
private
sector
participation
in
Solid
Waste
Management.
When
existing,
is
very
marginal
and
concerns
collection
services
only,
in
selected
parts
of
cities.
11. The
Proposed
Functional
Assignments
in
WASH
for
the
MMEWR
and
the
DCs
are
as
follows:
MMEWR
should
only
engage
with
service
production
function.
Needs
to
strengthen
substantial
all
capacities
related
to
regulation,
to
start
with
revising
the
PPP
contracts.
The
current
service
delivery
function,
as
it
exists
now
should
be
demoted.
DC
should
be
involved
in
water
supply,
through
providing
O&M
to
(i)
village
systems
and,
(ii)
un-
served
urban
areas,
as
new
infrastructure
is
built
in
such
areas
(mainly
by
donors).
The
role
of
the
water
committees
would
be
reduced
to
supervision
of
service
agreements
(with
district
departments/public
company)
and
assisting
with
cash
collection,
as
maybe
needed.
In
addition,
as
applicable,
and
as
needed,
district
government
should
provide
for
WASH
services
by
contracting
out
private
operators,
and
fulfilling
all
the
oversight
roles
implied
by
such
action.
District
governments
need
to
upgrade
thoroughly
their
service
delivery
capacities,
with
WATSAN
being
organized
in
a
mid
term
through
public
enterprises
owned
by
the
district.
District
governments
need
to
upgrade
their
role
in
Solid
Waste
Management
and
Hygiene
promotion,
in
line
with
the
powers
conferred
by
the
organic
Law
No.
23.
Participate
in
bottom-up
district
WASH
planning.
12. There
are
other
assignments
that
could
be
outlined,
but
this
would
depend
on
the
service
delivery
model
being
supported
(PPP,
community,
public
provision),
and
these
need
to
be
defined.
However,
the
main
thrust
of
Government
must
be
on
setting
WASH
policy,
planning,
budgeting
and
regulatory
oversight
and
enforcement
of
guidelines
and
building
core
staffing
capacity
to
have
oversight
of
PPP
and
other
sector
delivery
activities.
13. Costing
will
be
critical
to
increasing
budget
allocations
and
demonstrating
to
government
the
need
to
better
govern
off-budget
contributions.
23
Water
and
Sanitation
and
Hygiene:
From
the
Collins
English
dictionary
Complete
&
Unabridged
Edition
2009,
sanitation
is
defined
as
the
study
and
use
of
practical
measures
for
the
preservation
of
public
health.
The
obvious
implication
in
the
context
of
public
services
is
that
sanitation
comprises
both
wastewater
management
and
solid
waste
management.
Indeed,
the
word
sanitation
was
first
coined
in
1848,
irregularly
formed
from
sanitary.,
whose
Latin
root
sanit(as)
means
health.
It
was
first
recorded
in
1939
as
reference
to
garbage.
The
word
Sanitation
today
is
used
to
describe
both
wastewater
management
and
solid
waste
management.
Hygiene
refers
to
a
set
of
practices
to
be
associated
with
the
preservation
of
health
and
healthy
living.
Modern
medical
science
has
established
standards
of
hygiene
recommendations
for
different
situations.
Hygiene
has
not
(and
cannot)
developed
independently
into
a
public
services
sector,
rather,
hygiene
promotion
it
is
a
function
that
especially
in
developing
countries,
has
been
endorsed
by
the
public
authorities,
specifically
the
ministries
of
health.
The
reason
being
that
personal
hygiene
standards
are
generally
low,
leading
to
personal
and
potentially
public
health
hazards
and
eventual
improvements
of
water,
wastewater
and
SWM
services
would
not
create
the
expected
benefits
if
basic
hygiene
standards
were
not
observed.
Therefore,
the
whole
focus
of
hygiene
is
on
raising
public
awareness
on
the
importance
of
simple,
basic
personal
care
hygiene.
The
above
should
not
be
confused
with
the
routine
activities
of
the
MoH
or
local
government
related
to
the
sanitary
controls
of
public
facilities
(both
publicly
and
privately
owned),
such
as
schools,
shops,
slaughterhouses,
food
warehouses,
markets,
restaurants,
hotels,
etc.,
which
often
are
mistakenly
referred
as
hygiene
activities.
These
are
core
functions
of
the
MoH
in
Somaliland,
and
are
generally
implemented
in
every
country
to
ensure
the
safety
of
public
health.
In
Somaliland
local
governments
are
also
tasked
with
hygiene
promotion.
Hygiene
activities
can
be
calibrated
at
different
levels
of
sophistication,
however
in
Somaliland
they
are
mainly
condensed
into
a
basic
set
of
rules,
made
intelligible
to
the
broad
public.
In
this
report,
the
meaning
of
the
phrase
Hygiene
activities
is
therefore
consistent
with
the
explanations
provided
above
and
means
a
crosscutting
set
of
activities.
24
This
arises
from
the
fact
that
unlike
water
supply
and
wastewater,
SWM
is
not
a
natural
monopoly,
hence
competition
in
the
market
is
possible
and
that
removes
the
need
for
central
regulation
to
avoid
abuse
of
monopolistic
power.
These
notes
in
the
text
above
are
introduced
to
give
the
reader
a
conceptual
background
and
explain
why
further
discussion
on
price
regulation
is
located
at
the
water
supply
and
wastewater
services.
25
Water
chlorination
norms
while
of
course
related
to
hygiene,
stem
from
water
quality
standards
issued
by
MMEWR
under
the
technical
guidance
of
MoH.
26
For
example,
in
Sheikh
district,
among
the
tasks
falling
under
hygiene
activities
are
explicit
about
raising
changing
public
attitudes
to
address
hygiene.
27
Logically
this
is
because
of
high
density
of
such
on-site
facilities.
For
example
see
2001,
ARGOSS:
Guidelines
for
assessing
the
risk
to
groundwater
from
on-site
sanitation.
British
Geological
Survey
commissioned
report
CR/01/142.
BGS
Keyworth,
England.
28
Water
for
human
consumption
is
a
crucial
stake
in
the
water
sector
for
the
MoH,
which
provides
expertise
to
the
Ministry
of
Mining
Energy
&
Water
Resources
in
setting
the
appropriate
standards
of
potable
water
quality
standards
and
quantity
standard
on
an
average
per
capita
basis.
The
role
of
the
MoH
does
not
go
beyond
the
provision
of
such
expertise.
29
To
support
this
later
point,
many
development
agencies,
to
include
the
World
Bank,
have
precise
policies
with
regard
to
the
level
of
remuneration
of
local
staff
they
use
in
their
projects,
reflective
of
the
average
salaries
in
each
country,
precisely
to
mitigate,
as
much
as
possible
the
deformation
into
the
labor
market.
Water
Agency
Coordination
Table
23:
Definition
of
Functional
Assignment
to
Different
Levels
of
Government:
Water
Resources
Department
Planning,
Carry
out
monthly
and
yearly
plan
Develop
Collect
Develop
plan
Participate
in
More
verifications
plan
informati with
full
developing
plan
trained
Data
Bank
Done
on
participation
of
and
collect
X
staff
and
Partially
regional
offices
information
Training
done
Develop
plans
and
programs
Develop
Collect
Develop
plan
Participate
in
More
concerning
long
and
short
term
plans
and
informati and
programs
developing
plan
trained
planning
of
the
water
sector
programs
on
with
full
and
collect
staff
Not
done
Partially
participation
of
information
x
profession done
regional
offices
ally
Training
need
assessments
Not
done
Not
done
Conduct
Participate
in
More
training
need
training
need
X
trained
assessments
assessments
staff
and
arrange
for
the
needed
trainings
Exploration
Geophysical
Survey,
hydro- Develop
Collect
Develop
plan
Participate
in
x
More
geological
mapping
and
water
plans
and
informati and
programs
developing
plan
trained
&
catchment
basin
management.
programs
on
with
full
and
collect
staff
Geophysica
Not
done
Not
done
participation
of
information
l
Survey
regional
offices
Water
Coordinate
activities
between
Prepare
Regional
Prepare
Regional
offices
x
More
water
companies
and
Water
lease
offices
guidelines
for
sign
and
follow
trained
Agency
Resources
Department
agreement
help
in
lease
up
with
lease
staff
Coordinati
with
water
data
agreement
agreement
on
companies
collection
Done
Partially
done
Hygiene
Establishment
solid
waste
Not
done
Not
done
Develop
clear
Regional
offices
X
Training
collection
mechanisms
outline
of
solid
will
follow
the
and
enough
and
waste
collection
implementation
facilities
Sanitation
NOTE.
The
Recommended
mechanisms
with
active
are
approach
is
that
this
function
is
participation
of
provided
to
performed
by
the
MoPDE)
the
communities
central
and
regional
offices
Construction/re-construction
of
Not
done
Not
done
Develop
Regional
offices
X
bathing
facilities
procedures
for
will
make
sure
construction
of
that
procedures
bathing
are
in
place
facilities
Design
and
dissemination
of
key
Not
done
Not
done
Coordination
&
Regional
offices
X
More
messages
and
actions
that
will
oversight
will
play
major
trained
limit
vector
breeding
at
a
role
staff
household
level
Hygiene
Promotion
Personal
hygiene
promotion
Not
done
Not
done
Prepare
design
Train
x
relating
to
hand
washing
(at
of
IEC
materials
communities
to
critical
times),
latrine
usage,
for
illiterate
adopt
these
water
transport,
storage,
and
people,
gender
materials
and
consumption
as
well
as
considerations,
maintenance
of
infrastructure
maintenance
and
cultural
norms
latrines
and
management
related
to
latrines
water
points
and
water
points
Construction
of
household
and
Partially
Partially
Develop
plan
Participate
in
More
Sanitation
family
latrines,
and
communal
done
done
with
full
developing
plan
trained
latrines
participation
of
and
collect
X
staff
regional
offices
information
30
For
example,
in
the
feasibility
study
for
Sheikh
Water
System,
it
is
stated
that
before
the
investment
of
the
supply
system,
water
prices
were
well
above
their
ability
to
pay
for
93.75%
of
the
population
(set
at
$19/Hh/month).
The
calculated
price
after
the
investment
is
$17.5/Hh/month,
only
7.9%
lower,
and
predictably,
still
highly
unaffordable
for
a
striking
majority
of
households.
Need to be
issue/stage
of
Performance
harmonized
or
preparation
Description
of
against
revised
to
Attach
a
Date
of
Purpose
of
Anticipated
outputs
or
Facilitates
Decentralization
Legal/facilitative
expected
support
copy
of
the
instrument
outcomes
instrument
outputs
or
decentralizatio legislation
outcomes
n
Regions
and
Districts
2002
Organic
law
of
local
Engagement
of
LGs
in
Largely
not
Yes.
However,
the
law
is
not
Yes.
To
remove
Attached
Self
Administration
Law
Government.
provision
of
WASH
implemented.
resolute
as
to
the
exclusive
ambiguities
No.
23:
Defines
LG
bodies,
services
functions
of
LGs,
thus
creating
regarding
service
roles,
relations
and
ambiguity
in
its
interpretation.
provision
roles.
functions.
National
Water
Act
2004
Defines
legal
and
Overall
improvement
of
Largely
not
Yes,
by
setting
the
sector
legal
No.
Attached.
regulatory
sector
performance,
if
implemented.
and
regulatory
framework
it
framework
of
the
implemented.
This
is
does
facilitate
indirectly
sector.
Confers
irrespective
of
who
decentralization.
practically
all
provides
for
the
services.
regulatory
powers
to
MMEWR.
National
Water
Policy
2004
Determines
key
Very
modern
in
its
vision,
Not
Stipulates
that:
Supervision
is
Not
with
regard
Attached.
principles
for
water
the
policy
paves
the
way
implemented.
central
and
action
is
local:
The
to
sector.
for
a
sustainable
water
central
government
has
the
decentralization.
and
wastewater
sector,
responsibility
to
supervise
the
But
maybe
but
doubtful
with
respect
sector
through
the
regulatory
revised
to
ensure
to
being
realistic.
framework
established,
while
a
phased
and
local
levels
have
to
be
more
realistic
accountable
for
their
actions
approachit
is
and
ensure
that
relevant
very
forward-
information
is
directed
to
the
looking
and
has
central
level.
Read
together
little
chance
to
be
with
the
paragraph
on
applicable
in
a
Decentralization,
which
says
mid-term.
that
Planning,
implementation
and
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SOMALILAND
Final
Report
overall
management
by
the
Government
(through
MMEWR)
of
the
private
sector
participation
in
water
supply
services.
232. Re-thinking
of
the
WASH
sector
in
Somaliland
in
major
lines
is
practically
suggested
by
the
two
observations
above
supported
by
the
fact
that
the
legal
framework
addressing
the
local
government
structures
and
the
sector-specific
laws
in
their
entirety
encourage
local
governments
exclusive
role
in
service
delivery,
and
that
is
also
compatible
with
good
practice.
Yet,
the
findings
on
the
institutional
capacity
at
the
central
and
local
levels
to
discharge
the
production
and
provision
functions
strongly
suggest
a
parallel
movement:
While
initiating
effective
service
delivery
at
the
local
level,
strengthening
of
the
central
functions
regulatory,
oversight
need
to
be
equally
addressed.
233. The
fact
that
a
service
vacuum
in
WASH-especially
in
water
supply of
even
a
very
few
days
undoubtedly
precipitates
in
a
highly
unmanageable
crisis
situation,
any
proposed
approach
to
rethinking
the
sector
set
up,
must,
in
the
first
place,
totally
preclude
service
disruptions.
Sector
unbundling
must
therefore
be
done
is
a
gradual
fashion,
allowing
overlapping
of
competences,
especially
service
delivery
competences.
In
the
given
context,
the
substance
of
the
recommendations,
the
suggested
alternative,
parallel
services
model,
condensed
into
the
pilot
projects
proposed,
aims
at
the
following
objectives:
Encourage
de-concentration
of
the
Water
Resource
Department
structures
to
district
levels,
with
the
aim
to
gradually
integrate
these
into
the
local
government
structures
when
these
will
become
managerially
capable;
With
substantial
donor
assistance
start
outlining
an
alternative
service
delivery
model
with
the
creation
of
pilot
public
enterprises,
at
the
local
level
(district);
Explore
and
pilot
PPPs
at
the
rural
areas,
possibly
with
a
service
management
role
based
on
management
contracts,
as
alternative
to
lease
contracts;
Build
capacity
at
the
enterprise
level,
through
intensive
and
continuous
training
and
coaching
for
a
period
of
time
(1-3
years);
and
All
these
measures
need
a
substantial
support
with
capital
investments
and
a
re-dimensioning
of
the
assistance
of
the
donor
community,
which
should
enhance
the
local
government-strengthening
vector,
a
thorough
re-thinking
of
fiscal
decentralization
approach
to
make
it
workable
and
effective
over
time,
and
an
essential
civil
service
reform
to
support
all
the
other
reforms.
234. As
a
side
comment
it
can
be
stated
that
low
institutional
capacity
goes
hand
in
hand
with
low
level
of
infrastructure
facilities.
They
are
both
faces
of
the
same
coin,
and
while
the
equation
relating
the
two
is
complex,
nonetheless
the
development
of
the
later
is
a
factor
to
incentivize
the
improvement
of
the
former,
especially
with
regard
to
those
services
that
lack
infrastructure
altogether,
or
that
have
it
developed
at
a
basic
level
only.
International
experience
suggests
that
any
effort
to
strengthen
institutional
capacity
in
public
service
provision,
when
the
level
of
physical
infrastructure
is
inadequate
to
support
a
basic
level
of
services,
as
it
is
the
case
for
most
of
WASH
services
in
Somaliland,
needs
to
be
strongly
associated
with
capital
investment.
With
that
in
mind,
the
development
of
service
delivery
models
assumes
that
whenever
they
are
implemented,
a
suitable
level
of
physical
infrastructure
exists,
or
is
being
planned.
5.6
SERVICE
DELIVERY
MODEL
DEVELOPMENT
235. The
models
discussed
below
concern
water
supply
and
wastewater
services.
Although
the
latter
are
not
developed
in
terms
of
infrastructure,
the
management
bodies
and
operators
engaged
in
water
supply
services
discussed
herein
would
be
in
charge
of
these
services.
This
arises
out
of
the
fact
that
the
skills
both
managerial
and
technical
needed
to
address
water
supply
are
the
same
largely
for
wastewater
services.
Also
good
practice
requires
that
these
services
are
performed
by
the
same
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Assignments
SOMALILAND
Final
Report
entity/operator,
for
reasons
concerning
not
only
similar
skills,
but
consequential
links
between
the
two,
as
well
as
potential
cross-subsidizing
of
wastewater
services.
236. Solid
Waste
Management
models
are
not
discussed,
because
the
sector
requires
a
central
government
stakeholder
to
establish
sector
policies,
and
most
critically,
regulatory
standards.
The
operation
of
public
or
private
companies
requires
rules
in
place,
and
that
is
an
emergency.
It
is
recommended
the
line
ministry
should
be
the
ministry
of
environment,
while
service
delivery
should
remain
located
at
the
local
level,
though
both
the
public
and
private
sector
ought
to
be
involved.
237. With
regard
to
hygiene,
the
present
setting
where
the
central
government
bodies
(MoH
and
MMEWR)
discharge
their
tasks
through
mirror
subsectors
located
at
the
central
government
is
a
model
to
be
strengthened
with
more
action
especially
targeted
at
IDPs
and
nomadic
population.
In
addition,
more
innovative
activities
that
engage
the
youth
and
children
and
are
incorporated
with
the
educational
system
are
encouraged
and
suggested
as
good
ways
to
promote
hygiene
education.
238. The
development
of
service
delivery
models
for
water
supply
and
wastewater
services
in
Somaliland
concerns
two
aspects
(i)
correction
of
the
existing
models
and
(ii)
introduction
of
new
models
(or
variants
of
existing
models).
The
proposed
measures
to
correct
and
strengthen
the
existing
systems,
and
the
proposed
alternatives,
which
are
shown
in
Table
3,
are
informed
and
lead
by
considerations
concerning
delivery
of
social
goods
in
this
case,
WATSAN
services-
in
a
fair
and
equitable
manner
and
consideration
of
good
public
governance
All
the
three
proposed
models
are
suggested
to
become
pilot
projects.
5.6.1
AMENDMENT
OF
EXISTING
MODELS
AND
RATIONALE
239. The
WATSAN
service
delivery
landscape
in
Somaliland
is
dominated
by
PPPs.
The
public
sector,
while
not
entirely
missing,
is
almost
entirely
represented
by
central
government
departments
involved
in
highly
rudimental
service
delivery,
limited
to
emergency
repair
and
maintenance
of
basic,
not
networked
systems.
240. Concerning
the
PPP
arrangement,
the
main
problematic
is
on
the
governance
side,
and
less
on
the
models
per
se.
In
Somaliland
the
PPP
arrangement
resembles
to
a
hybrid
between
a
lease
and
concession,
arising
largely
due
to
poor
formulation
of
the
contracts,
which
created
ambiguities.
In
practice,
these
PPPs
fall
largely
within
the
boundaries
of
lease
contracts.
The
regulatory
framework
that
is
meant
to
govern
PPPs,
to
start
with
contract
terms,
is
weak
and
inappropriately
or
not
at
all
implemented.
The
proposed
measures
focus
therefore
on
the
overall
strengthening
of
the
regulatory
context,
which
implies
building
core
capacities
of
the
bodies
in
charge
of
implementation.
The
lines
along
which
such
improvements
need
to
take
place
are
those
of
good
governance
discharged
by
the
public
institutions
responsible
for
the
provision
of
public
services.
241. The
improvement
of
the
PPP
model
requires
prior
research
to
precisely
establish
the
following:
What
are
the
current
profit
rates,
which
are
deemed
to
be
abnormally
high,
and
on
that
basis
address
the
pricing
modalities
from
the
regulatory
side,
to
include
an
adequate
profit
rate
for
the
private
operators;
Amendment
of
contract
terms32
to
remove
any
ambiguity
and
strike
a
fair
private-public
balance;
and,
32
In
addition,
the
contracts
need
to
be
drafted
in
a
legally
correct
language
and
clear
terms.
143
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The
option
of
transforming
some
of
these
contracts
into
concessions,
needs
to
be
thoroughly
explored
in
a
longer
term,
after
meticulous
research
on
overall
performance
of
existing
operators
is
made
and
after
a
social
cost-benefit
analysis
is
conducted.
Important
to
note
here
that
concessions
particularly
require
a
strong
regulatory
environment,
which
realistically,
places
this
option
at
a
later
point
in
time.
242. The
public
sector
service
delivery
model
through
MMEWR
departments
is
deemed
largely
inadequate,
because
(i)
is
incompatible
with
the
regulatory
role
of
MMEWR
(ii)
is
highly
ineffective
and
inefficient,
and
has
no
chance
to
improve.
Therefore
the
recommendation
is
to
abolish
them
completely,
with
a
cautionary
note
that
this
needs
to
be
done
in
a
manner
that
does
not
cause
any
service
disruption.
243. The
village-based
water
committees
model
is
inadequate
to
ensure
at
any
degree
safe,
reliable
and
sustainable
services
because
it
lacks
(i)
an
organizational
structure
that
can
is
required
to
ensure
management
of
infrastructure
(ii)
lacks
human
resources
with
adequate
technical
skills
that
can
perform
specialized
operation
and
maintenance,
such
as
is
required
for
water
supply
services.
Water
supply
services
cannot
be
sustainable
on
a
voluntary-based
work
and
participation.
However,
community
participation
can
materialize
and
be
placed
in
the
role
of
the
supervisor
of
a
public
or
private
operators,
and
in
raising
community
awareness
on
issues
such
as
payment
of
bills
and
water
conservation.
The
following
discussion
on
the
proposed
models
for
public
service
delivery
are
an
extension
of
the
above,
as
it
seeks
to
fill
in
the
gap
that
would
be
implied
by
the
proposed
demotion
of
both
models
described.
5.6.2
PROPOSED
NEW
SERVICE
DELIVERY
MODELS
AND
RATIONALE
244. In
the
light
of
the
rationale
outlined
above,
the
proposed
new
models
seek
to
address
existing
concerns
in
the
public
sector
domain,
while
at
the
same
time
enabling
service
decentralization,
in
line
with
overarching
policies
in
Somaliland.
The
proposed
public
sector
involvement
in
service
delivery
is
considered
in
geographical
and
service
terms,
while
the
private
sector
participation
is
addressed
under
a
different
angle,
so
far
not
explored
in
neither
country.
The
proposed
models,
which
will
be
detailed
further
in
this
subsection
are
summarized
in
Table
3
at
the
end
of
this
subsection.
It
should
be
noted
however
that
the
introduction
of
public
service
delivery
models
with
a
social,
not-for-profit
profile,
strengthens
competition
in
the
sector,
but
also
helps
identify
excesses
of
the
private
sector,
especially
with
regard
to
pricing
and
other
social
considerations.
It
therefore,
has
the
potential
to
encourage
and
accelerate
reforms
for
improvement
of
sector
governance
as
a
critical
element
towards
more
adequate
WATSAN
service
delivery.
PROPOSED
MODEL
1
245. The
first
model
proposed
is
that
of
establishing
regional
bulk
water
supply
service
providers
(i.e.
public
companies)
owned
by
the
central
government
bodies.
The
rationale
for
this
model
is
informed
by
(i)
the
need
for
central
control
and
efficient
management
of
the
scarce
water
resources
in
Somaliland,
and
(ii)
the
economies
of
scale
that
could
be
exploited.
The
degree
of
aggregation
of
bulk
water
supply
services,
the
geographical
areas
where
this
is
feasible,
the
number
of
such
companies,
and
the
details
of
contractual
arrangements
with
the
retail
operators
are
key
details
that
require
further
research.
This
model
needs
to
be
implemented
on
a
pilot-basis.
In
the
long-term,
and
with
political
will,
this
model
has
the
potential
to
evolve
further
in
its
scope,
with
engagement
in
retail
services
to
the
public
and
as
an
alternative
to
the
private
sector.
This
model
has
been
implemented
in
Uganda.
246. The
second
and
the
third
model
regard
initially
the
rural
areas.
A
brief
analysis
of
the
existing
setting
their
reveals
that
the
Village
Councils
are
not
a
juridical
person,
they
have
no
direct
144
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responsibility
for
service
provision,
neither
can
they
be
held
accountable
if
they
fail,
as
often
happens.
Recent
research
has
suggested
that
the
community
management
model
introduced
in
many
parts
of
rural
Africa
has
largely
failed
to
produce
the
expected
results,
because
the
assumptions
made
on
the
strong
sense
of
ownership
have
proven
to
be
either
exaggerated
or
in
any
case
unrelated
to
the
attributes
required
to
perform
the
role
they
were
required
to
fulfill.33
However,
in
the
conditions
when
the
public
sector
is
at
its
infancy,
there
is
still
needed
a
strong
presence
and
participation
of
the
community,
but
re-modeled
to
mitigate
as
much
as
possible
the
problematic
it
presents
in
its
current
form.
These
observations,
together
with
the
factual
performance
of
the
community
management
in
both
countries,
naturally
lead
to
two
possible
models,
as
follows:
PROPOSED
MODEL
2
INVOLVING
DISTRICT
GOVERNMENTS
IN
SERVICE
DELIVERY
247. The
local
government
has
the
legal
mandate,
responsibilities,
and
can
be
held
accountable
if
they
do
not
perform
their
duties.
It
is
therefore
proposed
that
departmental
service
delivery
units
at
local
government
and
district
levels
be
established,
initially
serving
village
communities
and
later
expanding
their
services
towards
underserved
urban
areas.
These
departments
are
envisioned
to
evolve
into
public
companies
over
time
(if
not
possible
to
establish
as
such
from
the
beginning),
owned
by
the
local
governments
and
serving
within
the
respective
territories.
In
fulfilling
their
function,
these
entities
would
closely
cooperate
with
village
authorities,
in
the
form
of
a
management
services
agreement.
248. The
envisioned,
pro-active
role
for
the
community-based
structures,
i.e.
Water
committees,
consists
on:
(i)
due-diligence
on
payment
for
services
rendered,
and
(ii)
monitoring
the
performance
of
the
public
service
provider.
249. Given
the
public
sector
involvement,
pricing
policies
would
be
socially
acceptable
and
within
a
reasonably
affordable
range.
Ideally,
the
assets
of
these
systems,
irrespective
of
their
ownership,
should
be
held
by
these
public
companies
(when
they
are
in
place).
If
the
owner
is
the
district,
it
is
simple.
If
the
owner
is
the
village
community,
the
agreement
should
make
provisions
for
the
return
of
these
assets
upon
termination
of
the
contract
agreement.
The
viability
of
this
model
needs
to
be
substantiated
with
further
research
and
to
be
implemented
on
a
pilot-basis.
PROPOSED
MODEL
3
INVOLVING
THE
PRIVATE
SECTOR
250. In,
addition
to
the
involvement
of
the
private
sector
along
the
existing
lines
as
in
the
urban
setting,
another
suitable
model,
applied
selectively,
where
applicable,
is
that
of
management
contracts,
similarly
to
the
public
sector
model
described
above.
This
model
is
versatile,
as
it
enables
participation
of
small
private
operators
(companies),
not
just
the
big,
existing
companies,
introducing
some
competition
in
the
market.
The
time
span
of
a
management
contract
is
far
smaller
than
a
lease,
which
gives
more
choices
to
the
contracting
party.
It
is
obligatory
at
this
stage
that
the
contracting
party
has
to
be
the
MMEWR.
251. It
may
be
necessary
that
the
private
operator
has
side
performance
agreements
with
each
Village
Council,
with
the
latter
performing
a
contract-monitoring
role
alongside
the
contracting
authority.
With
the
evolvement
of
the
local
governments,
where
the
District
Council
of
any
given
district,
where
the
villages
adhere
to,
replaces
and
represents
these
Villages
Councils
in
such
side
agreements,
meaning
that
one
performance
agreement
is
signed
between
the
district
and
the
operator.
The
village
communities
would
have
a
role
in
performance
monitoring
alongside
the
district
authorities
and
would
33
See
Harvey
A.,
Reed
R.,
Community-managed
water
supplies
in
Africa:
sustainable
or
dispensable?.
Oxford
University
Press,
2007.
145
UNICEF
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Final
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commit
to
ensure
a
feasible
bill
collection
rate.
Over
time
the
contracting
out
could
be
done
by
the
district
itself,
thereby
bypassing
central
bodies.
252. The
MMEWR
suggests
to
extend
existing
sector
provision
functions
to
the
district
levels.
This
further
de-concentration
to
district
level
of
the
Water
Resource
Department
service
delivery
functions,
can
only
be
is
seen
as
an
interim
step
until
local
government
has
acquired
the
necessary
capacities
to
deliver
services,
in
line
with
the
overall
recommendation
made
in
this
report
to
ensure
division
of
functions
and
have
MMEWR
eventually
cease
engaging
in
service
delivery
as
it
is
doing
currently.
After
that,
the
service
delivery
structures
of
the
Water
Resource
Department
would
merge
into
the
same
type
structures
of
the
local
governments
thus
adding
value
to
these,
requires
new
staff
and
resources.
In
addition,
the
Water
Resource
Department
would
continue,
now
and
in
the
future,
to
discharge
its
regulatory
role
and
the
extension
of
its
structures
to
the
district
level
would
help
better
performance
in
this
aspect.
Therefore,
in
line
with
its
continued
regulatory
and
oversight
role
and
responding
to
the
need
to
strengthen
it,
the
recommended
new
structure
for
the
Water
Resource
Department
in
the
short
to
middle
term
envisions
the
creation
of
a
stand
alone
WATSAN
Regulation
&
Oversight
Department
as
presented
in
the
Figure
20
below:
FIGURE
20:
RECOMMENDED
STRUCTURE
FOR
MMEWR
253. In
support
of
the
above,
and
In
line
with
the
recommended
strengthening
of
MMEWR
in
its
regulatory
role
and
in
support
of
the
service
delivery
models,
further
capacities
are
needed
within
the
MMEWR,
as
presented
in
Table
25:
146
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Table
25:
Recommended
Skills
&
Staffing
Levels
for
Water
Resource
Dept
Staffing
Skills/Levels
The
central
Ministry
is
substantially
under-financed,
with
negative
impacts
on
WASH
provision.
Increasing
the
sector
allocation
through
the
budget
process
would
focus
on
building
the
core
policy,
strategy
and
regulatory
oversight
capacities
of
the
Ministry,
including
its
ability
to
engage
in
contract
management;
It
is
important
to
identify
the
preferred
Service
Delivery
Models
for
Water
Supply
Public
Private
Partnerships
(PPPs),
differentiating
between
urban
and
rural
areas,
while
also
agreeing
these
models
within
government
and
key
donors
financing
the
sector,
so
that
both
on
and
off-budget
funding
are
coordinated
around
the
same
generic
SDM
approach.
This
would
bring
new
standards
of
sector
governance,
accountability
and
transparency.
A
number
of
models
are
proposed;
There
is
a
need
to
actively
consider
the
separation
of
regulatory
oversight
and
service
delivery
functions,
in
the
interests
of
sector
accountability,
both
in
relation
to
general
service
provision
and
PPP
arrangements;
The
existing
contract
arrangements
for
PPPs
need
to
be
clear
on
whether
lease
or
concession
arrangements
are
being
proposed,
as
well
as
responsibilities
for
asset
ownership
and
management,
given
the
need
to
strengthen
network
management
and
expansion.
Moreover,
it
is
important
to
undertaking
cross-project
comparators
to
set
pricing
and
determine
economic
viability,
and
to
be
clear
on
the
role
of
central
authorities
and
Local
Government,
around
the
preferred
service
delivery
models;
If
future
WASH
related
investments
should
be
underpinned
by
Social
Cost
Benefit
Analysis,
not
just
calculation
of
financial
rates
of
return,
and
as
a
result
different
service
delivery
models
can
be
entertained.
This
approach
is
important
because
water
is
not
just
an
economic
good
but
also
a
public
good
and
essential
service.
Equally,
undertaking
ability-to-pay
surveys
around
both
urban
and
rural
delivery
models
will
provide
a
foundation
where
the
recovery
of
operational
costs
at
least
can
be
achieved;
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There
is
no
reason
why
PPP
engagement
models
can
not
be
piloted
for
Solid
Waste
Management
(SWM).
These
are
likely
to
be
profitable
in
Grade
A
Districts,
which
would
remove
a
major
source
of
ill
health
from
local
jurisdictions;
In
developing
pilots,
it
is
vitally
important,
particularly
in
urban
delivery
where
LGs
should
play
a
significant
role,
that
pilots
are
calibrated
to
reflect
the
different
fiscal
and
human
resource
capabilities
of
different
districts.
While
there
is
justification
for
an
initial
focus
on
Grade
A
and
perhaps
B
districts,
pilots
and
SDMs
will
also
need
to
be
developed
for
more
rural
and
isolated
districts
classified
as
Grades
C
and
D;
The
Government
needs
to
improve
aid
management
for
the
sector,
thereby
leverage
external
funding
for
new
projects
and
building
better
delivery
standards,
maximizing
the
impact
of
investments
on
long
term
service
extension;
Provide
support
for
core
technical
skills
(hydro-geological
surveys,
design
options,
maintenance
standards
and
regulatory
compliance);
and,
Identify
models
for
co-locating
services
so
that
Water,
Sanitation
and
Health
constraints
are
overcome
by
creating
standards
for
WASH,
Education
and
Health
facilities.
148
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-6-
Recommendations for
Strengthening Service Delivery
149
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6.
RECOMMENDATIONS
FOR
STRENGTHENING
DELIVERY
255. This
assessment
has
provided
significant
evidence
for
strengthening
(i)
local
government
(ii)
vertical
sector
Ministry
and
(iii)
sector
coordination
between
both
structures.
Critical
to
this
recommendations
outlined
here
however,
is
an
understanding
that
unless
regional,
district
and
local
government
offices
are
staffed
with
a
minimum
staffing
compliment,
setting
functional
assignments
risks
being
a
solution
on
paper,
and
not
in
practice.
As
a
result,
even
though
Law
23/2002
needs
to
be
revised,
as
do
sector
laws
to
be
clear
on
functional
assignments
between
the
vertical
sectors
and
local
government,
a
strong
drive
in
strengthening
regional,
district
and
local
government
capacities
and
finances,
and
their
ability
to
attract,
retain
and
motivate
staff
will
be
key
to
long
term
improved
governance.
The
following
recommendations
are
made:
Civil
Servant
Survey
for
Key
Sectors
and
Local
Government:
There
is
a
need
to
undertake
a
Civil
Servant
Survey
of
all
public
service
employees
in
the
three
sectors,
at
central
regional
and
district
levels,
and
across
all
District
Councils,
to
identify
existing
staffing
competencies.
This
information
is
unavailable
but
is
critical
to
setting
functions
and
to
determining
the
staffing
competency
required
at
different
levels
(See
Table
26
below
for
different
staffing
competencies
by
district);
Urgently
Revise
Law
23/2002
and
Strengthen
Draft
Sector
Laws:
Revising
Law
23/2002
to
be
clear
on
the
exact
functional
assignments
of
the
Social
Affairs
Department
at
the
District
Level
is
critically
important,
as
is
strengthening
draft
sector
laws
which
are
similarly
unclear
on
the
relationship
between
deconcentrated
vertical
structures
and
local
government;
Define
Service
Delivery
Models
and
Strengthen
Government
Provision
Functions:
Given
that
government
functions
are
largely
limited
to
provision
and
not
production
functions,
with
the
majority
of
assistance
channeled
outside
of
government
systems,
Government,
supported
by
donors
must
establish
clearly
defined
service
delivery
models
and
an
aid
management
protocol
that
supports
better
oversight
of
decentralized
delivery,
to
defragment
current
service
delivery
approaches.
Most
services
are
currently
decentralized
by
default
and
not
design;
Maximize
Efforts
to
Resolve
Financing
Constraints:
Given
the
fiscal
constraints
impeding
both
the
sectors
and
local
government,
Government
needs
to
consider
(i)
revising
the
current
local
government
block
grant
formula
to
remove
fiscal
imbalances
(ii)
developing
(piloting)
sector
categorical
grants
for
local
government
(iii)
costs
the
sectors
and
increase
budget
allocations
and
(iv)
improve
coordination
of
external
assistance
through
development
of
national
programs
and
trust
fund
arrangements
to
ring-fence
finance;
Priority
Sector
Activities
have
been
Identified:
The
various
activities
proposed
under
each
sector,
which
need
to
be
completed
within
the
coming
two
years
or
more,
must
be
discussed
and
agreed,
then
supported
by
Government
and
donors;
and
The
private
Sector
and
Diaspora
are
Critical
Drivers
of
Services:
Whilst
the
private
sector
and
NGOs
are
poorly
regulated,
they
are
also
core
providers
of
services
and
consultation
between
the
sectors
and
private
sector
is
vital,
as
are
upgrading
current
PPP
arrangements.
34
See
http://www.scribd.com/doc/59032555/Somaliland-in-Figures-2010
150
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General
Conclusion
on
Decentralized
Service
Delivery
The
following
general
conclusions
were
reached
in
relation
to
the
current
decentralization
process,
all
of
which
impact
both
horizontal
local
government
and
vertical
sector
governance.
These
general
conclusions
were
validated
by
the
Government
of
Somaliland,
and
should
therefore
frame
much
of
the
forward
discussion:
As
outlined
above,
Law
23/2002
needs
to
be
revised
to
clarify
the
formal
functional
assignments
of
local
district
councils
in
relation
to
health,
education
and
WASH
service
provision,
but
such
clarification
must
take
into
consideration
the
fiscal
imbalances
across
districts
Graded
A
to
D.
A
national
consultation
process
would
be
required
to
make
sure
that
changes
reflect
the
preferred
balance
of
power
in
relation
to
political,
fiscal
and
administrative
decentralization;
There
is
no
clear
champion
of
decentralization
above
the
level
of
sector
Ministries,
to
envision,
guide
and
channel
efforts
to
improve
policy
coordination
around
improved
decentralized
delivery.
There
is
no
decentralization
Policy
Framework
and
this
needs
to
be
established
to
guide,
shape
and
sequence
improved
local
governance,
reflective
of
different
district
capacities.
There
are
suitable
models
from
Uganda
and
Kenya
which
may
be
useful
to
review,
in
particular
around
functional
assignments
and
consolidated
local
government
budgeting;
Education,
health
and
WASH
sector
laws,
acts,
policies
and
strategies
need
to
be
explicit
about
the
formal
relationship
between
the
vertical
sector
and
Local
Governments
(LGs),
including
a
clear
description
of
functional
assignments
at
the
interface
between
horizontal
and
vertical
structures;
The
current
fiscal
transfer
mechanisms
need
to
be
reviewed
to
remove
horizontal
fiscal
imbalances
and
through
discussion
between
central
government
(MoI,
MoF,
Sector
Ministries)
and
LGs,
agree
sector
financing
rules
in
support
of
agreed
functional
assignments;
Given
improvements
in
the
Medium
Term
Fiscal
outlook,
including
significant
increases
to
local
government
finances,
the
role
of
the
centre
and
LGs
are
changing
year-on-year,
in
terms
of
their
ability
to
move
beyond
recurrent
costs
payments,
with
the
state
increasingly
able
to
deliver
real
services
to
citizens;
Core
Service
Delivery
Models
(SDMs)
for
the
education,
health
and
WASH
sectors
need
to
be
clearly
defined
to
allow
government
and
external
support
to
be
effective
in
fostering
improved
sector
delivery.
This
will
also
require
the
development
of
models
to
address
social
exclusion,
particularly
for
pastoral
communities,
and
also
piloting
approaches
such
as
School
Based
Management
(SBM)
that
positions
schools
as
the
primary
service
delivery
unit,
not
the
district
per
se;
The
process
of
decentralized
service
delivery
demands
a
clear
focus
at
central,
regional
and
district
levels,
not
just
at
the
level
of
local
government.
As
a
result,
future
investments
must
balance
support
for
vertical
sector
Ministries
and
horizontal
local
governments;
and,
The
numbers
of
regions
and
districts
still
has
to
be
formally
endorsed
by
parliament,
undermining
a
clear
model
for
decentralization
and
focus
for
decentralized
local
governance
within
the
unitary
structure
of
Somaliland.
151
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REFERENCES
DFID
(2011)
Operational
Plan
(2011-2015)
EU
(2008)
Somalia,
Joint
Strategy
Paper
Geopolicity
(2010)
Guidelines
for
Conducting
Functional
Reviews
Geopolicity
(2011)
Integrating
Policy,
Planning
and
Budgeting
Process
to
Strengthen
Service
Delivery
Geopolicity
(2012)
Note
on
School
Based
Management
Options,
UNICEF
GoS
(2001)
Somaliland
Constitution,
May
31st,
2001
GoS
(2002)
Law
23,
Regions
and
Districts
Law
GoS
(2008)
The
Somaliland
National
Education
Plan
(NEP),
2008-2011
GoS
(2010)
Somaliland
Non-Governmental
Organizations
Law
(Law
No.
43/2010)
GoS
(2011)
National
Development
Plan
(2012-2016),
Government
of
Somaliland
GoS,
Public
Private
Partnership
Lease
contracts
(for
various
locations)
GoS/JPLG
(2010)
Local
Development
Fund
Module,
Training
Manual
GOS/MoF
(2011)
Medium
Term
Fiscal
Framework
(MTFF),
Ministry
of
Finance
JPLG
(2008)
Joint
Program
Document
JPLG
(2011)
Mid
Term
Review
JPLG
(2011)
Third
Quarterly
Report
JPLG
Quarterly
Reports
MoE
(2005)
National
Education
Policy,
Government
of
Somaliland
MoE
(2007)
Somaliland
Education
Sector
Strategic
Plan
(2007-2011),
Government
of
Somaliland
MoE
(2008)
Funding
Plan
for
Expanded
Access
to
Primary
Education,
a
Secondary
Education
and
TVET
MoE
(2008)
Policy
Framework
for
Decentralization
of
Education,
Government
of
Somaliland
MoE
(2008)
Strategic
Issues
in
Teacher
Management
and
Development
MoE
(2011)
Draft
Somaliland
National
Education
Act
(SNEA),
Government
of
Somaliland
MoE
(2011)
Free
Primary
Education
Policy,
Government
of
Somaliland
MoE
(2011)
The
National
Education
Trust
Fund
Policy,
Government
of
Somaliland
MoF
(2010)
Proposed
New
National
Revenue
Mobilization
Plan,
Government
of
Somaliland
MoF
(2010)
The
Medium
Term
Fiscal
Framework
for
Somaliland
(MTFF),
Government
of
Somaliland
MoF
(2011)
Fiscal
Decentralization
in
Somaliland,
Government
of
Somaliland
MoH
(2009)
Essential
Package
of
Health
Services,
Reports
No.
1,
2
and
3
MoH
(2011)
National
Health
Policy,
Government
of
Somaliland
MoI
(2009)
Induction
Module
For
Councilors
And
Technical
Staff,
Government
Of
Somaliland
The
Somaliland
National
Development
Plan
(NDP)
2012-2016
(Revised
and
approved
in
November,
2011)
UNDP
(1999)
Decentralization:
A
Sampling
of
Definitions
UNICEF
(2006)
Effects
of
Decentralization
on
Primary
Education
UNICEF
(2010)
Somalia
Annual
Report
UNICEF
(2010)
WASH
Annual
Report
UNICEF
Health
Care
Seeking
Behavior
in
Somalia
UNICEF/EU
Costing
the
Essential
Package
of
Health
Services
WHO
(2010)
Somalia
Nutrition
Strategy
(2011-2013)
WHO
(2011)
World
Health
Report
World
Bank
(2003)
Country
Re-engagement
Note
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Final
Report
Public
Sector
Management
Terms
Used
Capital
Budget:
A
plan
for
finance
outlays
such
as
fixed
assets
like
equipment
and
facilities.
Chair
of
the
Local
Council:
the
head
of
the
leadership
of
the
Local
Council.
Council
Resolutions:
A
decision
made
by
the
Local
Council.
Decentralization
is
the
transfer
of
powers
from
central
government
to
lower
levels
in
a
political-
administrative
and
territorial
hierarchy.
Decentralization
covers
a
broad
range
of
transfers
of
decision
making
from
central
government
to
regional,
municipal
or
local
governments.
Legislative
and
policy
decision
making
remains
at
the
center
while
implementation
is
delegated
to
either
national
civil
servants
stationed
in
the
regions
or
locally
established
councils.
Deconcentration
is
the
process
by
which
the
agents
of
central
government
control
are
relocated
and
geographically
dispersed.
Deconcentration
is
the
transfer
of
administrative
responsibility
for
specific
functions
to
lower-level
central
government
authorities
or
other
local
authorities
who
are
upwardly
accountable
to
the
central
government.
Delegation:
Delegation
(or
deputation)
is
the
assignment
of
authority
and
responsibility
to
another
person
(normally
from
a
manager
to
a
subordinate)
to
carry
out
specific
activities.
Devolution
is
the
transfer
of
government
responsibility
for
specific
functions
to
sub-national
levels
that
are
largely
outside
the
direct
control
of
central
government.
The
purpose
is
to
create
pluralism
of
policy
and
administration.
The
process
in
which
sub-government
units
and/or
national
or
regional
parliaments
are
created
by
a
central
government
is
known
as
devolution.
District:
Part
of
a
region
with
a
concentrated
population
and
with
a
demarcated/specific
borders
Federalism
is
the
system
of
government
in
which
sovereignty
is
constitutionally
split
between
at
least
two
territorial
levels
(e.g.
center
and
governorates)
so
that
units
at
each
level
have
final
authority
and
can
act
independently
of
the
others
in
some
area.
Fiscal
Policy:
In
economics,
fiscal
policy
is
the
use
of
government
spending
and
revenue
collection
to
influence
the
economy.
Changes
in
the
level
and
composition
of
taxation
and
government
spending
can
impact
(i)
aggregate
demand
and
the
level
of
economic
activity
(ii)
the
pattern
of
resource
allocation
(iii)
and
the
distribution
of
income.
Fiscal
sustainability:
Maintaining
spending
within
limits
that
are
affordable
in
terms
of
the
ability
to
raise
revenue
and
maintain
debt.
Functional
Review
is
an
analytical
and
diagnostic
process
that
provides
the
foundation
for
restructuring
of
public
administration
bodies
to
perform
all
necessary
functions
in
the
most
efficient,
effective
and
sustainable
manner.
Governance
is
about
maintaining
public-sector
resources
under
some
degree
of
political
control
and
developing
strategies
to
sustain
governments
capacity
to
act
in
transparent
and
accountable
way.
154
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Report
Local
Councils:
A
council
with
elected
members
by
the
local
population,
which
administers
the
local
Authority.
Local
Government:
An
entity
in
a
district
or
town
with
legal
personality,
and
with
objective
stipulated
in
this
law.
Permanent
Committee:
A
committees
whose
members
come
from
the
Local
Council
and
with
responsibilities
as
stipulated
in
this
law.
Public
Administration
Reform
(PAR)
is
the
process
to
increase
the
capacity
and
effectiveness
of
the
public
administration,
to
create
citizen-centered,
open
and
flexible
governance
model.
Public
Finance
Management
(PFM)
is
the
management
of
revenue,
expenditures
and
debt
of
the
state.
It
includes
all
phases
of
the
budget
cycle,
including
the
preparation
of
the
budget,
internal
control
and
audit,
procurement,
monitoring
and
reporting
arrangements,
and
external
audit.
Recurrent
Budget:
Spending
on
wages
and
salaries,
operations
and
maintenance,
not
of
an
investment
nature.
Region:
Part
of
the
Somaliland
State
of
Somalia
composed
of
one
or
more
districts.
Revenue
Mobilization:
Tax
and
non-tax
income
collected
by
Government.
Service
Delivery
Model:
A
model,
usually
at
the
sectoral
or
sub-sectoral
level
that
identifies
how
services
are
to
be
delivered,
by
whom
(government,
private
sector,
communities),
when,
where
and
at
what
cost.
Models
look
to
maximize
effectiveness
and
efficiency.
Service
Delivery:
Services
delivered
to
consumers
by
the
government
or
private
sector.
The
Mayor:
The
head
of
the
District
Local
Authority
Unbundling:
The
unbundling
of
sector
production
and
provision
(management)
functions
and
sub-
functions
across
the
tiers
of
government
and
between
state
and
non-state
actors.
Unitary
State
is
a
country
whose
organs
of
state
are
ruled
as
a
single
unit.
Political
power
may
be
transferred
to
lower
levels
(e.g.
regional
assemblies,
governor
councils,
etc.)
and
functions
can
be
devolved
to
sub-national
levels
of
government
but
the
central
government
retains
the
power
to
modify
or
recall
such
devolved
power.
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Final
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ANNEXES
156
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Somalia
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Name
Designation
Rt.
Hon
Abdurrahman
Abdillahi
Speaker
of
the
House
H.E.
Hussein
Mohamed
Minister
MoH
H.E.
Zamzam
Aden
Minister
MoEHS
H.E.
Hussein
Dualeh
Minister
MMEWR
H.E.
Nimco
Oudhan
Vice
Minister
MoH
Abdullahi
Egeh
DG
MoI
Mohamed
Ahmed
Asst.
DG
MoI
Mr.
Hussein
Jiciir
Mayor
of
Hargeisa
Mr.
Abdirahman
Bile
Mayor
of
Borama
Mr.
Mohamed
Ahmed
Mayor
of
Buroa
Ms.
Khadra
Younis
Mayor
of
Gebiley
Mohamed
Hassan
DG
MoEHS
Khadar
Ahmed
Dir.
Planning
MoH
Abdi
Nour
DG
MoH
Abdirashid
Guleid
DG
MoP
Emilien
Nkusi
THET
Dr.
Remi
Sogunro
THET
Abdi
Mohamed
Dir.
NFE
Mohamed
Mahmoud
SONSAF
Bashe
Ahmed
DG
MoL
Saed
Jibril
DG
MMEWR
Kassem
Dand
UNHABITAT
Abdi
Adam
JPLG
Team
Leader
Ashe
Ahmed
UNHABITAT
Sahal
Hassan
UNDP
Ayanle
Omar
UNICEF
Mohamed
Hassan
ILO
Alexandra
Windisch
UNDP
Mahdi
Omar
UNDP
Manfred
Winnefeld
UNICEF
Welu
David
Dir.
Planning
MoF
Dr.
Hassan
Jama
Dir.
Fiscal
Policy
Unit
Sharmake
Mohamed
MoEHS
Mohamed
Hure
MoEHS
Ubale
Driaale
MoEHS
Dejan
Tanaskovic
MoEHS
Abdi
Mohamed
MoEHS
Awil
Liban
MoEHS
Omar
Dualeh
MoEHS
Mohamed
Jirde
MoEHS
Abdelrahman
Aly
Water
Agency
Ahmed
Mohamed
AET
Munu
Abdillahi
AET
Habiba
Ahmed
AET
Ali
Jama
LARS
Naima
Ahmed
DARET
Gabriella
Das
MSF
157
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on
Functional
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Final
Report
158
UNICEF
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Study
on
Functional
Assignments
SOMALILAND
Final
Report
159
UNICEF
Somalia
Study
on
Functional
Assignments
SOMALILAND
Final
Report
160
UNICEF
Somalia
Study
on
Functional
Assignments
SOMALILAND
Final
Report
1. Lasanod
A
2. Ainabo
C
3. Taleh
C
4. Hudun
C
5. Boane
D
6. Yagori
D
The
Sahil
Region
Name
of
the
district
Grade
1. Berbera
A
2. Sheikh
C
3. Mandhere
D
4. Bulahar
D
5. Hagal
D
161
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on
Functional
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SOMALILAND
Final
Report
Date
Sector
or
Description
Location
Time
Name
Title/
Contact
Info
(email/phone)
Venue
of
Meeting
(from/to)
Organization
24/10/11
Ministry
of
Interior
MoI
Office
08:30
09:30
Geo
Team
MoI
Hargeisa
Meeting
Hargeisa
Maureen
Njoki
UNICEF
mnjoki@unicef.org
Abdullahi
Egeh
DG
MoI
ahige13@yahoo.com
Mohamed
Ahmed
Asst.
DG
MoI
Ayanle
Omar
UNICEF
ayomar@unicef.org
24/10/11
Ministry
of
Planning
MoP
Office
10:00
11:00
Geo
Team
MoP
Hargeisa
Meeting
Hargeisa
Abdirashid
Guleid
DG
MoP
Sumal37@hotmail.com
24/10/11
De-
Brief
UNICEF
Office
10:00
11:00
AH
Geo
UNICEF
Hargeisa
Maureen
Njoki
UNICEF
mnjoki@unicef.org
Hargeisa
24/10/11
Mayoral
Meeting
Mayors
11:15
-
13:00
Geo
Team
Mayors
Office
Office
Hussein
Jiciir
Mayor
of
Hargeisa
hargeisamayor@yahoo.ca
Hargeisa
25/10/11
Health
Meeting
MoH
Office
10:00
12:00
Health
Expert
MoH
Hargeisa
Hargeisa
Khadar
Ahmed
Dir.
Planning
MoH
Khaddar_moh@yahoo.com
Abdi
Nour
DG
MoH
abdibidix@yahoo.com
Emilien
Nkusi
THET
Health
Mgr.
emilien@thet.org
Remi
Sogunro
THET
Consultant
gos500@gmail.com
25/10/11
Education
Meeting
MoEHS
Office
09:30
11:00
Education
Expert
MoEHS
Hargeisa
Hargeisa
Mohamed
Hassan
DG
MoEHS
Dg.moe@hotmail.com
Abdi
Mohamed
Dir.
NFE
4424785
25/10/11
SONSAF
Meeting
SONSAF
11:00
11:30
Education
Expert
SONSAF
Office
Moed
Mahmoud
Exec.
Sec.
SONSAF
sonsafed@gmail.com
Hargeisa
Hargeisa
25/10/11
MoL
Meeting
MoL
Office
11:45
12:30
Education
Expert
MoL
Hargeisa
Hargeisa
Bashe
Ahmed
DG
MoL
molsadg@gmail.com
25/10/11
JPLG
Meeting
ILO
Office
14:00
15:30
Geo
Team
ILO
Hargeisa
Hargeisa
Kassem
Dand
UNHABITAT
Abdi
Adam
JPLG
Team
Leader
Ashe
Ahmed
UNHABITAT
Sahal
Hassan
UNDP
Ayanle
Omar
UNICEF
Mohamed
Hassan
ILO
162
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Somalia
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on
Functional
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SOMALILAND
Final
Report
Date
Sector
or
Description
Location
Time
Name
Title/
Contact
Info
(email/phone)
Venue
of
Meeting
(from/to)
Organization
Alex
Windisch
UNDP
Alexandra.windisch@undp.org
Mahdi
Omar
UNDP
25/10/11
UNICEF
Meeting
UNICEF
Office
16:00
17:00
Geo
Team
UNICEF
Hargeisa
Maureen
Njoki
UNICEF
Mnjoki@unicef.org
Hargeisa
Ayanle
Omar
UNICEF
26/10/11
WASH
Meeting
MMEWR
09:00
11:30
WASH
Expert
MMEWR
Office
H.E.
Hussein
Dualeh
Minister
MMEWR
Minister.mmewr@somaliland.gov. Hargeisa
Hargeisa
Saed
Jibril
com
DG
MMEWR
mmewrdg@gmail.com
26/10/11
Health
Focus
Group
Mansoor
10:00
13:30
Health
Expert
Mansoor
Hotel
Hotel
Hussein
Mohmd
Minister
Hargeisa
Khadar
Ahmed
Dir.
Planning
MoH
Khaddar_moh@yahoo.com
Abdi
Nour
DG
MoH
abdibidix@yahoo.com
Lula
Jirdeh
Chair
NHP
Emilien
Nkusi
THET
Advisor
Abdirashid
Osman
THET
Dir.
Abdirahman
Bile
Mayor
Borama
Mohmd
ahmed
Mayor
Buroa
Hussein
Jicir
Mayor
Hargeisa
Abdisamad
Kayse
Lasanod
Municipality
Jimcan
Yiusuf
Dir.
Manhal
Jama
Yusuf
MoH
Abdi
Hassan
WHO
Mohmd
ahmed
MoI
Mohmd
Yusuf
MoH
Hassan
Omar
MoH
HIV/AIDS
Abdi
Ahmed
MoH
Abdishakur
Mohmd
MoH
M&E
Ahmed
Abdi
Mohmd
Abdilahi
MoH
Eng.
Abdisarak
THET
Mustafe
MoH
THET
163
UNICEF
Somalia
Study
on
Functional
Assignments
SOMALILAND
Final
Report
Date
Sector
or
Description
Location
Time
Name
Title/
Contact
Info
(email/phone)
Venue
of
Meeting
(from/to)
Organization
26/10/11
Education
Meeting
MoEHS
Office
11:00
12:30
Education
Expert
MoEHS
Hargeisa
Hargeisa
H.E.
Zamzam
Aden
Minister
MoEHS
zamzamanaden@yahoo.com
26/10/11
Education
Meeting
Mansoor
17:00
18:15
Education
Expert
Mansoor
Hotel
Hotel
AH
Hargeisa
Manfred
Winnefeld
UNICEF
Section
Chief
mwinfeld@gmail.com
27/10/11
Finance
Meeting
MoF
Office
08:30
10:00
AH
MoF
Hargeisa
Hargeisa
Saeed
Caydid
Welu
David
Dir.
Planning
MoF
wedavid@gmail.com
27/10/11
Finance
Meeting
Fiscal
Policy
10:15
12:00
AH
FPU
Hargeisa
Unit
MoF
Saeed
Caydid
Dr.
Hassan
Jama
Dir.
Fiscal
Policy
Unit
27/10/11
Education
Meeting
MoEHS
Office
08:00
12:00
Education
Expert
MoEHS
Hargeisa
Hargeisa
Sharmake
Mohmd
ICDSEA
Officer
shussein@cfbt-africa.com
Mohmd
Hure
Inst.
Devlp.
Officer
mhure@cfbt-africa.com
Ubale
Driaale
Head
EMIS
Unit
datainmoe@gmail.com
Dejan
Tanaskovic
EMIS
Coordinator
dejan.emis@gmail.com
Abdi
Mohmd
Dir.
Planning/Policy
dpprc.moe@hotmail.com
Awil
Liban
Head
MoEHS
Research
profliban@gmail.com
Omar
Dualeh
Head
Engineering
4267233
Mohmd
Jirde
Head
TVET
4424785
27/10/11
WASH
Meeting
MMEWR
09:00
12:00
WASH
Expert
MMEWR
Office
Abdelrahman
Aly
Water
Agency
Hargeisa
Hargeisa
Coordinator
Saed
Jibril
DG
MoW
27/10/11
Health
Meeting
&
Mansoor
09:30
15:00
Health
Expert
Mansoor
Hotel
Workshop
Hotel
Khadar
Ahmed
Dir.
Planning
MoH
Khaddar_moh@yahoo.com
Hargeisa
Abdi
Nour
DG
MoH
abdibidix@yahoo.com
Dr.
Remi
Sogunro
THET
Health
Policy
gos500@gmail.com
Consultant
27/10/11
Briefing
Meeting
UNICEF
Office
15:00
-16:00
AH
Geo
UNICEF
Hargeisa
Saeed
Caydid
Hargeisa
Maureen
Njoki
UNICEF
mnjoki@unicef.org
28/10/11
Health
Meeting
Mansoor
14:00
15:00
Health
Expert
Mansoor
Hotel
Hotel
Khadar
Ahmed
Dir.
Planning
MoH
Khaddar_moh@yahoo.com
164
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Somalia
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on
Functional
Assignments
SOMALILAND
Final
Report
Date
Sector
or
Description
Location
Time
Name
Title/
Contact
Info
(email/phone)
Venue
of
Meeting
(from/to)
Organization
Hargeisa
29/10/11
NGO
Meetings
NGO
Offices
08:00
12:00
Education
Expert
Africa
Edu.
Trust
NGOs
Hargeisa
Hargeisa
Ahmed
Mohamed
General
Manager
Inamacalin1@hotmail.com
Munu
Abdillahi
Coordinator
Muni.eathargeisa@yahoo.co.uk
Habiba
Ahmed
Nomad
Officer
aethargeisa@yahoo.co.uk
Ali
Jama
LARS
Coordinator
alijamaaet.hargeisa@yahoo.co.uk
n.aet@hotmail.com
Naima
Ahmed
DARET
Coordinator
29/10/11
NGO
Meetings
NGO
Offices
08:00
12:00
Health
Expert
NGOs
Hargeisa
Hargeisa
Gabriella
Das
MSF
Coordinator
Sx-medco@oca.msf.org
Temmi
Sunyoto
MSF
Msfocb-hargeysa-
med@brussels.msf.org
Fadumo
Kahin
Dir
Hargeisa
Hospital
fadumokahin@gmail.com
Mohamed
Wahab
Pharmacist
awliyo2007@hotmail.com
Ahmed
Farab
Chief
of
Laboratory
digaale55@hotmail.com
29/10/11
UNICEF
Meeting
Mansoor
13:00
14:30
Geo
Team
Mansoor
Hotel
Hotel
Hargeisa
Mette
Nordstrand
UNICEF
Country
Rep
Mnordstrand@unicef.org
UNICEF
Section
Chief
4772467
Manfred
Winnefeld
mwinfeld@gmail.com
30/10/11
Education
Meetings
MoEHS
Office
07:30
12:00
Education
Expert
MoEHS
Hargeisa
Hargeisa
HE
Zam
Zam
Aden
Minister
zamzamanaden@yahoo.com
Abdillahi
Warane
Senior
Advisor
44210106
Mohmd
Khalif
Chief
Inspector
Mohamed-hassan@hotmail.com
Mohmd
Hassan
School
Inspector
mohamedmohd@hotmail.com
Khader
Ali
School
Inspector
4476957
Ahmed
Ismail
School
Inspector
ahmedismaile@hotmail.com
Abdillahi
Gullaid
School
Inspector
gulaid05@hotmail.com
Mohmd
Ahmed
Head
of
Training
HR
kulmiye105@hotmail.com
Ahmed
Ismam
ICDSEA
Trainee
gudde31@hotmail.com
Abdirashid
Muse
ICDSEA
Trainee
duceeye75@hotmail.com
Avdi
Osman
Dir.
HR
personnelmoe@live.com
30/10/11
WASH
Meetings
MMEWR
08:30
11:00
Wash
Expert
MMEWR
Office
Saed
Jibril
DG
MMEWR
mmewrdg@gmail.com
Hargeisa
165
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Functional
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SOMALILAND
Final
Report
Date
Sector
or
Description
Location
Time
Name
Title/
Contact
Info
(email/phone)
Venue
of
Meeting
(from/to)
Organization
Hargeisa
Khadar
Ali
Water
Coordinator
Mohmd
Daher
Field
Geologist
30/10/11
Health
Meetings
THET
Office
09:00
12:00
Health
Expert
THET
Hargeisa
Hargeisa
Abdirashid
Ibrahim
Country
Rep
THET
abdirashid@thet.org
Emilien
Nkusi
Cap.
Build.
THET
emilien@thet.org
Alessandra
Bozza
Coordinator
COOPI
bozza@coopi.org
30/10/11
WASH
De
Brief
UNICEF
Office
14:00
16:30
Wash
Expert
UNICEF
Hargeisa
AH
Hargeisa
Mette
Nordstrand
UNICEF
OIC
mnordstrand@unicef.org
Maureen
Njoki
UNICEF
Coordinator
mnjoki@unicef.org
Tai
Ring
Teh
Head
of
WASH
trteh@unicef.org
30/10/11
NGO
Meeting
Mansoor
17:30
21:00
Geo
Team
PENHA
Mansoor
Hotel
Hotel
Amsale
Shibeshi
Regional
Coordinator
ashibeshi@hotmail.com
Hargeisa
John
Livingstone
Regional
Policy
Officer
jklivingstone@hotmail.com
31/10/11
Regional
Health
Trip
Gebiley
07:00
15:00
Health
Expert
Gebiley
Region
Region
AH
Khadra
Younis
Mayor
Gebiley
4463529
Bogor
Village
Dr
Deka
Omar
Dr.
Gebiley
Hospital
deeqacumaro70@hotmail.com
Asha
Ali
Dir.
Gebiley
MCH
4466664
Mohmd
Nadar
Nurse
Gebiley
MCH
4463596
Ahmed
Bari
Health
Worker
Bogor
4662309
Dr
Ahmed
Ismail
REO
Gebiley
ahmed202_7@hotmail.com
Muthar
Daoud
Pharmacist
Gebiley
4465226
31/10/11
Regional
WASH
Trip
Gebiley
07:00
15:00
WASH
Expert
Gebiley
Region
Region
Khadra
Younis
Mayor
Gebiley
4463529
Hassan
Omar
Regional
Coordinator
gasleh99@hotmail.com
Mohmd
Eldin
Manager
Water
Co.
goodm3@hotmail.com
Saed
Diriya
Nat.
Env.
Research
31/10/11
Regional
Education
Gebiley
07:00
15:00
Education
Expert
Gebiley
Region
Trip
Region
Khadra
Younis
Mayor
Gebiley
4463529
Mohamed
Hadi
REO
Gabiley
4466100
Ahmed
Shirwac
Head
Gebiley
Prim.
4466544
Mohmd
Saleiman
Head
AW
Comp.
4466107
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on
Functional
Assignments
SOMALILAND
Final
Report
Date
Sector
or
Description
Location
Time
Name
Title/
Contact
Info
(email/phone)
Venue
of
Meeting
(from/to)
Organization
1/11/11
Education
Meetings
MoEHS
Office
08:30
-
13:00
Education
Expert
MoEHS
Hargeisa
Hargeisa
Ali
Ismail
Finance
advisor
MoEHS
Alismail72@yahoo.com
Ayaan
Gubail
Gender
advisor
MoEHS
Ta.gendersl@gmail.com
Faisal
Ahmed
Trainee
MoEHS
Hujaale84@yahoo.com
1/11/11
WASH
Meetings
MMEWR
08:30
13:00
Wash
Expert
MMEWR
Office
Saed
Jibril
DG
MMEWR
mmewrdg@gmail.com
Hargeisa
Hargeisa
Ahmed
Dirir
Director
of
Water
directorofwater@gmail.com
1/11/11
Health
Meetings
MoH
Office
08:30
10:00
Health
Expert
MoH
Hargeisa
Hargeisa
Hussain
Hashii
HMIS
Data
Mgr.
Hashi19@hotmail.com
Abdi
Shakur
Program
Officer
Abdishakur02@hotmail.com
Abdi
Ali
Dir.
Admin.
Finance
4424329
Muna
Hussein
OIC
EU
4426808
1/11/11
Health
Meetings
Health
14:00
15:00
Health
Expert
Health
Unltd.
Unlimited
Rajeev
Vishwakarma
Health
Unltd.
Rajeev.kumar@healthunlimited.or Hargeisa
Office
g
Hargeisa
2/11/11
Education
Meetings
MoEHS
Office
08:30
-
12:30
Education
Expert
MoEHS
Hargeisa
&
NGO
Ahmed
Mohamed
AET
Gen.
Mgr.
Inamacalin1@hotmail.com
Offices
Shukri
Bandare
Chair
Candlelight
shukriband@yahoo.com
Hargeisa
Ahmed
Awale
Exec
Dir.
Candlelight
alawale@hotmail.com
Mahmoud
Hayad
Secondary
Edu.
MoEHS
4421044
2/11/11
WASH
Meetings
MMEWR
08:30
13:00
WASH
Expert
MMEWR
Office
Saed
Jibril
DG
MMEWR
mmewrdg@gmail.com
Hargeisa
Hargeisa
Ahmed
Dirir
Director
of
Water
directorofwater@gmail.com
Fisal
Hagy
Dir.
Admin
&
Finance
2/11/11
Health
Meetings
MoH
Office
10:00
13:00
Health
Expert
MoH
Hargeisa
Dr
Jama
Mahmoud
Dir.
Public
Health
4075298
Hargeisa
Libaan
Samad
PHO
liban_h38@hotmail.com
3/11/11
Education
Meetings
MoEHS
08:00
-10:00
Education
Expert
MoEHS
Hargeisa
Offices
Khadar
Diiriye
DG
Higher
Education
kdirriye@yahoo.com
Hargeisa
Muktar
Abdi
Advisor
hadaafe@hotmail.com
3/11/11
Education
Meetings
Various
10:15
13:00
Education
Expert
Hargeisa
Hargeisa
Mohmd
Hussein
Program
Mgr.
IR
Timajilic53@yahoo.com
Osman
Alawech
Dean
Hargeisa
Uni.
osmanawleh@hotmail.com
167
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on
Functional
Assignments
SOMALILAND
Final
Report
Date
Sector
or
Description
Location
Time
Name
Title/
Contact
Info
(email/phone)
Venue
of
Meeting
(from/to)
Organization
Elias
Tadesse
Edu.
Mgr.
StC
eliastadesse@scsom.org
3/11/11
Health
Meetings
Hargeisa
08:00
09:30
Health
Expert
Hargeisa
MCH
MCH
AH
Faduma
Hassan
Midwife
4418098
Amin
Abdirahman
Team
Leader
4425697
3/11/11
Health
Meetings
Merlin
Office
09:45
11:00
Health
Expert
Merlin
Hargeisa
Hargeisa
AH
Khadar
Abdullahi
PHC
Mgr.
4480542
Nimo
Hussein
Nutrition
Officer
4000826
Abdizarak
Ali
Ops
Officer
4405169
3/11/11
Health
Meetings
UN
Habitat
11:15
11:45
Health
Expert
UN
Habitat
Office
AH
Hargeisa
Hargeisa
Asia
Adam
Project
Officer
4425158
3/11/11
WASH
Meetings
MMEWR
08:00
13:00
Wash
Expert
MMEWR
Office
Ahmed
Dirir
Director
of
Water
Directorofwater@gmail.com
Hargeisa
Hargeisa
Abdel
Salam
Ismael
Abdi
Geophysics
dacwi@live.com
Abdullahi
Warsame
Regional
Coordinator
4385077
Mohmd
Wardere
Head
of
Livelihoods
mwardere@caritas.ch
3/11/11
Project
Meeting
Parliament
12:00
13:00
AH
Parliament
Building
Rt.
Hon.
Abdirahman
Hargeisa
Hargeisa
Abdillahi
Speaker
of
the
House
Somalilandspeaker@cirro.org
3/11/11
De
Brief
Meeting
UNICEF
13:15
13:45
AH
UNICEF
Office
Maureen
Njoki
UNICEF
mnjoki@unicef.org
Hargeisa
Hargeisa
5/11/11
WASH
Meetings
MMEWR
08:30
12:00
WASH
Expert
MMEWR
Office
Abdel
Salam
Coordinator
MMEWR
Water
Co.
Water
Co.
Abdi
Abdullahi
Deputy
Water
agency
4424878
SWALIM
Office
Hussein
Adam
Eng.
Water
Agency
4427168
Hargeisa
SWALIM
Ali
Hirsi
Chief
Eng.
4423117
Office
Abdel
Saed
HR
Manager
4424472
Hargeisa
Ali
Ibrahim
Liaison
SWALIM
4427886
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Functional
Assignments
SOMALILAND
Final
Report
Date
Sector
or
Description
Location
Time
Name
Title/
Contact
Info
(email/phone)
Venue
of
Meeting
(from/to)
Organization
6/11/11
Team
Strategy
Maansoor
10:00
13:00
Geo
Team
Maansoor
Hotel
Meeting
Hotel
______
___________________
Hargeisa
7/11/11
UNDP
Meeting
Ambassador
09:00
11:00
Education
Expert
Ambassador
Hotel
AH
Hotel
Hargeisa
Joanne
Morrison
UNDP
Janne.morrison@undp.org
Alex
Windisch
UNDP
Alexandra.Windisch@undp.org
Patrick
Duong
UNDP
Patrick.duong@undp.org
8/11/11
Education
Meeting
MoEHS
Office
08:30
10:00
Education
Expert
MoEHS
Hargeisa
Hargeisa
Mohamed
Deria
Director
Formal
4438764
Education
8/11/11
Education
Meeting
ADRA
Office
10:15
11:30
Education
Expert
ADRA
Hargeisa
Hargeisa
Mohmd
Aden
Program
Coordinator
Hamoud22@hotmail.com
Khadra
Ali
Project
Assistant
Zaam17_2@hotmail.com
9/11/11
WASH
Focus
Group
MMEWR
08:30
13:00
Wash
Expert
MMEWR
Office
Mohmd
Magen
Planning
Officer
Mohamed.allamagen@gmail
Hargeisa
Hargeisa
Ali
Hirsi
Chief
Engineer
4423117
Hussein
Adam
Engineer
4427168
Fisal
Hagi
Admin
&
Finance
Ismael
Abdi
Geophysicist
4425123
Abdullah
Warsame
Regional
Coordinator
4365077
Hassan
Omar
Regional
Coordinator
4468118
Abdel
Salam
Coordinator
4424878
Ahmed
Dirir
Director
of
Water
directorofwater@gmail.com
Sead
Jibril
DG
MMEWR
4241087
9/11/11
Education
Focus
PENHA
Office
09:00
13:30
Education
Expert
PENHA
Hargeisa
Group
Hargeisa
AH
Saeed
Caydid
Faysal
Ismail
Gacma
CEC
4418492
Raaqiya
Ibrahim
Gacma
CEC
Mutaas
Mohamed
Gacma
CEC
Muuse
Caydiid
Sheikh
CEC
Anisa
Abdi
Sheikh
CEC
Aadan
Nuur
Sheikh
CEC
4102986
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Functional
Assignments
SOMALILAND
Final
Report
Date
Sector
or
Description
Location
Time
Name
Title/
Contact
Info
(email/phone)
Venue
of
Meeting
(from/to)
Organization
Halimo
Jamac
Sheikh
CEC
Hamda
Ibrahim
Ahmed
CEC
Abshir
Muuse
Ahmed
CEC
Abdirahman
Hayid
Ahmed
CEC
434415
9/11/11
Health
Meeting
MoH
Office
12:30
-
13:30
Health
Expert
MoH
Hargeisa
Hargeisa
Abdi
Nour
DG
MoH
abdibidix@yahoo.com
9/11/11
Health
Meeting
MSF
Office
14:00
15:00
Health
Expert
MSF
Hargeisa
Hargeisa
Geoffroy
Duque
Head
of
Mission
Msfocb-hargeysa-
hom@brussels.msf.org
Dr
Temmy
Sunyoto
Medical
Coordinator
Msfocb-hargeysa-
med@brussels.msf.org
10/11/11
Education
Meeting
MoEHS
Office
08:00
09:00
Education
Expert
MoEHS
Hargeisa
Hargeisa
HE
Zam
Zam
Aden
Minister
zamzamanaden@yahoo.com
10/11/11
Education
Meeting
Havoyoco
09:00
10:00
Education
Expert
Havoyoco
Office
Ismail
Ahmed
Exec.
Director
havoyoco@hotmail.com
Hargeisa
Hargeisa
HAVOYOCO
10/11/11
Health
Meetings
MoH
Office
10:00
13:00
Health
Expert
MoH
Hargeisa
Hargeisa
H.E.
Hussein
Mohmd
Minister
4240064
H.E.
Nimco
Oudhan
Khadar
Ahmed
Vice
Minister
nimcomune@yahoo.com
Dir.
Planning
MoH
khadar_moh@hotmail.com
12/11/11
Education
Meeting
MoEHS
Office
08:30
10:00
Education
Expert
MoEHS
Hargeisa
Hargeisa
HE
Zam
Zam
Aden
Minister
zamzamanaden@yahoo.com
12/11/11
WASH
Meeting
MMEWR
08:30
10:30
Wash
Expert
MMEWR
Office
H.E.
Hussein
Dualeh
Minister
Minister.mmewr@somaliland.gov. Hargeisa
Hargeisa
com
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ANNEX
IV
FOCUS
GROUPS
ATTENDEES
Table
28:
Education
Focus
Group
Attendees
Name
Organization
Faysal
Ismail
Gacma
Community
Education
Council
Raaqiya
Ibrahim
Gacma
Community
Education
Council
Mutaas
Mohamed
Gacma
Community
Education
Council
Muuse
Caydiid
Sheikh
Community
Education
Council
Anisa
Abdi
Sheikh
Community
Education
Council
Aadan
Nuur
Sheikh
Community
Education
Council
Halimo
Jamac
Sheikh
Community
Education
Council
Hamda
Ibrahim
Ahmed
Community
Education
Council
Abshir
Muuse
Ahmed
Community
Education
Council
Abdirahman
Hayid
Ahmed
Community
Education
Council
Table
29:
Health
Focus
Group
Attendees
Name
Organization
H.E.
Hussein
Mohamed
Minister
MoH
Khadar
Ahmed
Dir.
Planning
MoH
Abdi
Nour
DG
MoH
Lula
Jirdeh
Chair
NHP
Emilien
Nkusi
THET
Abdirashid
Osman
THET
Abdirahman
Bile
Mayor
Borama
Mohamed
Ahmed
Mayor
Buroa
Hussein
Jiciir
Mayor
Hargeisa
Abdisamad
Kayse
Lasanod
Municipality
Jimcan
Yiusuf
Dir.
Manhal
Jama
Yusuf
MoH
Mohamed
Ahmed
MoI
Mohamed
Yusuf
MoH
Hasan
Omar
MoH
Abdi
Ahmed
MoH
Abdishakur
Mohamed
MoH
Mohamed
Adilahi
THET
Abdisarak
Mustafe
THET
Table
30:
WASH
Focus
Group
Attendees
Name
Organization
Saed
Jibril
DG
MMEWR
Ahmed
Dirir
Dir.
Of
Water
MMEWR
Mohamed
Magen
Planning
Officer
MMEWR
Ali
Hersi
Chief
Engineer
MMEWR
Hussein
Adam
Engineer
MMEWR
Fisal
Hagi
Admin
&
Finance
MMEWR
Ismael
Abdi
Geophysicist
MMEWR
Hassan
Omar
Regional
Coordinator
MMEWR
Abdel
Salam
Coordinator
MMEWR
Abdullan
Warsame
Regional
Coordinator
MMEWR
171
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Final
Report
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