II. Definition and objectives of a PRSP and MDG information tracking system

II.1 PRSP and MDG implementation monitoring and evaluation system..
II.2 Definition of an information system
II.3 Information system-related concepts
II.4 Structure of PRSP and MDG information tracking system
II.5 Role of stakeholders in the production and use of indicators.
II.6 Notion of continued learning in an iterative process
II.7 Statistical development strategy.

II.1. PRSP and MDG implementation monitoring and evaluation system

The PRSP monitoring and evaluation system seeks to fully grasp poverty variables, trends and impacts. In this respect, special consideration should be given to some criteria which are assessed collectively. These criteria include relevance, coherence, effectiveness, efficiency and sustainability. All assessments and analysis will be based on priorities retained in the PRSP of various States.

The overarching objective of PRSP monitoring and evaluation besides enhancing knowledge on living conditions of the population is to appraise the outcomes and impacts of poverty reduction strategies. This initiative aims to crystallize MDGs, to which all the States have subscribe, that lays the groundwork for a global development partnership.

The major specific objectives include:

• improving economic, financial and social data collection systems;
• achieving harmonization, coherence and coordination in data collection, processing and analysis systems as well as in the dissemination of findings;
• assessing and reporting intervention results, outcomes and impact in a timely manner;
• building the capacities of national monitoring and evaluation bodies;
• defining core relevant indicators to objectively measure progress in poverty reduction and human development efforts;
• providing reliable and complete information to all stakeholders.

To achieve this goal, it is vital to set up an information system.

II.2. Definition of an information system

An information system is defined by its components, interactions among its components and links with other systems. It may comprise several subsystems. The statistical information system is a data collection and reporting system providing information social, economic, cultural and development trends. It is a set of closely related variables and reporting procedures comprising compiled quantitative and qualitative data. It contributes to improved administration and management of political, social and economic life. It is designed to guide strategic decisions through greater visibility, scientific objectivity and efficient design and implementation.

The information system, a tool for accessing and using information

An information system is a key component of the decision-making process. Statistical information systems have two key functions: (i) production of information through database management and (ii) communication and advocacy by reporting and analyzing findings. Data compilation highlights the activities of the NSS composed of NIS and other bodies compiling sectoral statistics. Communication warrants the development of a network of producers/users and a common language that entails harmonizing concepts and methodologies, and promoting the use of information.

Structures and channels used in the production and management of consistent flows of statistical information form the architecture of the information system. This includes the hardware, data processing and institutional procedures, stakeholders network (producers and users) and data. An information system receives data from specific sources (statistical or administrative surveys) which is converted into information or indicators, for interpretation and wide dissemination.

Information systems are manifold and varied. They are defined according to their set objectives. Examples include social information systems (education, health, employment), geographical information systems, poverty reduction information systems, etc.

Objectives of a poverty reduction information system (PRIS)

The main objective of an information system is to provide information, specifically statistical information, used to understand and monitor, in a timely manner, the economic and social trends of a country. Thus, a poverty reduction information system (PRIS) enhances knowledge on the living conditions of the population and helps in gauging outcomes and the impact of poverty reduction policies in general.

More specifically, PRIS seeks to:

• improve the statistical data production system for tracking household living conditions;
• achieve the harmonization, coherence and coordination of data collection, processing, analysis and dissemination at all levels (national, regional, county, local government, etc.);
• periodically gauge policy, programme and project results, outcomes and impact;
• strengthen the monitoring and evaluation capacities of national structures;
• provide full access by all relevant stakeholders (including civil society) to information and address subsequent requests.

The medium-term objective of PRIS is to improve statistical information production and management capacity to monitor and analyze the living conditions of the population for the purpose of redefining PRS objectives.

II.3. Information system-related concepts

    II.3.1 Database.
    II.3.2 Stakeholders’ network
    II.3.3 Production of a poverty reduction information system
    II.3.4 Managing an information system
    II.3.5 Indicators and metadata on indicators.

II.3.1. Database

A database is a collection of information and indicators organized methodically to facilitate access and use for analytical purposes. The information contained in a database is quantitative and/or qualitative. Information stems from the conversion of data into variables of relevance to decision-makers. Such data should appear as meaningful and relevant to users. Data are objective yardsticks to profile people, places, events, etc.

Raw findings are generally not useful to the lay man. However, the ensuing indicators better describe a situation. Indicators are barometers of change. They are used to review outcomes and progress. They are benchmarks for checking, decision-making, consultation and evaluation [UNDP, 1999].

The information system, common database tool

Databases are an integral part of an information system. While it is advisable for each sector (agriculture, health, education, etc.) to manage its own database, it is essential to have a single database at national level, composed of sectoral databases. This resolves inter alia the problem of multiple values for the same indicator and establishes an information management unit that underpins an efficient monitoring/evaluation system.

The United Nations promotes the development of national databases providing all requirements for preparing various documents on monitoring the living conditions of the population.

II.3.2. Stakeholders’ network

A harmonized consultation framework for data producers and users

Information producers and users are stakeholders of the information system. Users include intermediate or end-users. The information system commands synergy and consistency between information needs, data, collection methods, processing methods and indicators. This entails permanent consultation of stakeholders at each level of the system design: (i) assessment and formulation of information needs, (ii) design of collection tools, (iii) development of a processing and analytical plan and, (iv) dissemination of information.

Common directories and survey frames, as well as nomenclatures and structural identifiers constitute the vital toolkit.

II.3.3. Production of a poverty reduction information system

A policy monitoring and evaluation tool

A reliable information system is characterized by the timely production of quality policy, programme and project (PPP) monitoring and evaluation documents, including accurate data to guide sound decision-making. This includes PRSP implementation and progress reports, reports on MDGs, policy, programme and project impact assessment reports, as well as revised PRSPs and national human development reports (NHDR). All these documents are inter alia sine qua non to social dialogue and national economic management.

PRSP implementation and progress report

The implementation report reviews measures and resources adopted or allocated by government to undertake various actions envisaged for PRS implementation. It is periodic and should become an annual publication.

MDG report

This instrument should help in raising public awareness, publicizing activities, establishing partnerships and renewing political commitments, as well as building national capacities to assess development objectives. The MDG report is basically a document on public affairs. It mainly aims to build an enabling operational environment as an incentive policymaker and stakeholder intervention[1]. It is basically an advocacy tool. It is published annually.

Policy, programme and project (PPP) impact assessment report

The policy, programme and project (PPP) impact assessment report is a thorough analytical document that seeks to identify PPP with positive impacts on the living conditions of the population. It also enables the assessment of efficiency, relevance and sustainability of poverty reduction interventions. It can therefore prompt policy shifts, better programme and project choices, institutional reforms, as well as better resource allocation. It samples target populations exclusively. Ideally, they should be published every three years to coincide with PRSP review.

A progressive and iterative approach

The PRSP process is progressive and iterative. Hence, the complexity of the concept of poverty. Monitoring and evaluation findings which report objective achievement levels may warrant the adjustment of targets, objectives and even programmes and projects, without necessarily modifying the overall poverty reduction strategy. This is known as the review process. Reviews are conducted on the basis of accurate statistics thereby justifying the need for a coherent information system. The PRSP that has undergone such review is called the revised PRSP. It is formulated at the end of a PRSP round, serves as the PRSP of the following round and marks the different generations of the process. Some PRSPs are now in their second generation. A PRSP usually lasts three or four years.

II.3.4. Managing an information system

Managing an information system relates to updating process, accessibility, consultation, dissemination and reporting. Sometimes, access and dataflow protocols, notably by the media, are established. Information system management impacts positively on future data collection.

II.3.5. Indicators and metadata on indicators

Indicators

An indicator aims to measure temporal and spatial progress in achieving a set objective.

An appropriate indicator should have the following characteristics[2]:

• measure progress in a direct and unequivocal manner;
• be relevant;
• vary over time, according to areas and groups and take on board changes in policy, programmes and institutions;
• transcend events not directly related to policies or programmes and adamant to manipulation;
• be realistic to ensure regular production at affordable costs;
• be easy to interpret.

Metadata

Metadata of an indicator includes all the requisite information for its regular production, namely:

• full name of indicator;
• clear definition of the indicator including all statistical variables necessary for its calculation;
• type of indicator;
• method of obtaining statistical variables;
• level of disaggregation;
• frequency of production;
• supervisory service.

Indicators can be grouped into four categories (they are referred differently from one institution to another):

• resource or input indicators or input variables (Input);
• operational results or direct delivery or activity indicators or output variables (Output);
• performance indicators (Outcome);
• impact indicators (Impact).

Statistical variables used in calculating each indicator and various data collection operations are identified.

The main types of household surveys conducted in sub-Saharan African countries include:

• population and housing surveys;
• social and health surveys;
• surveys on household living conditions with or without income component;
• multiple indicator cluster surveys;
• 1-2-3 surveys;
• CWIQ surveys;
• etc.

Moreover, some social data can be obtained from administrative statistics through school and health surveys, etc.

The level of disaggregation, reference and target must be specified for each indicator.

The level of disaggregation indicates the indicator level:

• geographical area (national, regional, county, etc.);
• environment (urban, rural);
• gender;
• social group;
• level of income;
• etc.

The indicator monitoring timelines (month, quarter, year, two years, three years, etc.) should reconcile recent and regular data needs and cost of collection.

Oversight is exercised by the service calculating the indicator This is the primary source.

Targets

A target is a predefined value of an indicator that a country seeks to achieve at a given date.The targets for each type of indicator can be defined (resources, operational results, outcomes, impact) and targets must be determined through a participatory process.

Three analytical methods are used to evaluate the technical feasibility of targets: comparative historical analysis, macrosimulation and microsimulation. Comparative historical analysis seeks to compare target indicator changes with the historical development of this indicator in the country or similar country. The macrosimulation method uses regressive techniques to determine relations between social indicators and growth, urban development, and other variables on overall national data. Microsimulation methods use the same technique as in the previous one though restricted to household survey data.

II.4. Structure of PRSP and MDG information tracking system

The information system can be broken down into three sub-systems to meet demand for information used in PRSP and MDG monitoring and evaluation. It is necessary to distinguish between:

1. information needs to track poverty and household living conditions which relate to the systematic production of indicators and/or basic information for each priority sector identified in PRSP and MDG;
2. information needs to track programme and project implementation;
3. information needs for assessing ongoing policy, programme and project impact with a more restrictive scope and aimed to determine if actions undertaken in target groups actually produced the expected results.

1. the institutional dimension relates to managing the institutional stakeholders’ network for the purpose of “optimal” data production and flow. Issues related to short- and medium-term financing of the system should be managed at this level to ensure the sustainability of tools. A coordination unit should pilot these activities.[3]
2. the coverage dimension represents role sharing (specifications) between the various stakeholders of the information system (basic data on poverty) indicating the type of data to be collected and the organization of statistical information for each of the priority sectors, sensitive geographical areas, type of population, etc. as well as levels of disaggregation to be retained.
3. the time-bound dimension refers to need to ensure regular accountability and to measure the rate of change that has taken place with regards to set objectives. This involves the periodic preparation of a management report to be distributed to all stakeholders including their possible feedbacks.
4. the human resource dimension deals with mobilizing experts and promoting an operational capacity-building programme within a context of scarce competent and qualified human resources. First, it is necessary to envisage a multiple role (from the collection of basic data to the validation of results analysed) for statistical or administrative services involved in PRS/MDG monitoring and evaluation before proceeding to the second phase involving the specialization of services for the sake of greater efficiency.

II.5. Role of stakeholders in the production and use of indicators

A key component of the strategy: stakeholders’ role classification

In setting up an efficient information system, the roles and duties of the stakeholders or players must be clearly spelt out. This means defining responsibilities for producing data used to feed the information system as well as management of such data. Stakeholders’ roles definition outlines the scope of action, the nature of what they would have to monitor and the products they should deliver as their input to the feeding and management of the information system. Such roles include:

• data and information production;
• analysis of findings made from such data and information;
• design and maintenance of sample directories and frames;
• dissemination and use of analyses in the form of reports;
• coordination of the whole system.

These roles are defined and clarified through statutory instruments and provide answers to questions such as: Who needs what? When? How? What should be done? Inadequate of sheer lack of clarity may cause conflict in information management.

II.6. Notion of continued learning in an iterative process

The learning process is capital in setting up an information system

The information system is the core instrument of the monitoring and evaluation system which is result-oriented. It is one of the central elements of the PRSP and MDG processes. A basic aspect of this system is the learning dynamics of the processes. Such learning should be appraised at all levels. The iterative nature of the processes highlights the need for such learning dynamics. In fact, the operationalization of an information system should be considered as a painstaking exercise. It is advisable to start off with a small reduced number of indicators and gradually implementing an information system improvement plan [World Bank, 2004; Ferragu, 2003; IDEA Institute, 2003]. Such plan will be an opportunity to draw lessons from previous experience and practices, improve future programming and factor in changes over time in the living conditions of the people and poverty. This approach will be a learning process for all stakeholders, a lever to boost stakeholders’ efficiency and the performance of their bodies thereby strengthening technical capacities in data collection, processing and analysis and information dissemination.

To achieve this objective, national statistical systems must be equipped with a coherent framework to guarantee the production of quality statistics in the medium- and long-term.

II.7. Statistical development strategy

• identification of the strategy starting point, i.e. a review of the national statistical system, as described above;
• setting of objectives and goals to have an idea of progress made during a given period;
• choice of priority action areas to achieve the set objectives;
• putting in place systems to track progress and report to all stakeholders.

An important decision which needs to be taken at the very beginning of the process concerns the time-limit for this strategy. First, emphasis should be placed on short-term needs, because the PRSP sets a specific implementation period. Furthermore, many statistical activities require longer timelines, such as population censuses, which are generally conducted every ten years and other surveys conducted every five years (PHS, MICS). To handle both aspects, States must develop an information production strategy which comprises both short- and long-term elements.

In the short term, emphasis shall be on PRSP and MDG immediate data needs. This entails making efficient use of the existing data production systems and contributing to the improvement of data dissemination and analysis. In the medium term, focus will be on investments to be carried out to develop new data production systems (impact analysis) and handle constraints relating to human resources, equipment and management systems.

Short-term priorities and actions

In this context, short term is construed as a period of one year. It is unlikely that the statistical system will successfully prepare, produce and disseminate information churned out by a new large information system during such a period. Therefore, it is necessary to pay special attention on improving the functioning of existing data production processes rather than introducing new comprehensive data collection processes (coordination, institutional issues, ownership of tools).

The key concern is first, to meet immediate PRSP progress tracking indicators needs and second, to improve existing data systems, notably by increasing production turnaround time, enhancing analysis and widening dissemination. This can also contribute to improving the image and prestige of the statistical system and laying the groundwork for increased long-term investments.

The NSS of many countries are impeded by lack of resources. Nowadays, they can hardly mobilize more resources owing to poor statistical production. Striving to improve the quality of a small number datasets may be an efficient means to tip the boat over and contribute to transforming the vicious circle into a virtuous circle. In such a scenario case, the statistical system responds to needs and improves quality and efficiency which explains increased support for scaling up investments.

The following short-term actions may be undertaken in many countries:

• improving the processing of administrative data in key sectors such as health, education and employment in order to reduce delays in data production and improve reliability
• increasing statistical publications to ensure greater user accessibility and provide better analyses and interpretations for unspecialized users;
• disseminating data on the Internet and in electronic formats to save time or costs of printing reports and write-ups;
• publishing preliminary findings of surveys and other data collection methods to disseminate important information more rapidly;
• designing and developing a database to pool core data from various sources;
• reporting further on data sources and methods used (metadata) and actions taken to ensure that users are informed of any changes to method and scope;
• disseminating survey data to provide easy access to researchers and thereby, enable them to provide answers to key issues like targeting, impact assessment and resource allocation.

Long-term investments

In the long term, the strategy will have a wider scope and cover most aspects of statistical development. The strategy is expected to cover the following areas:

• Improving data collection and processing systems and methods
  States should run a common data collection programme that clearly outlines priority areas applicable to censuses, sample surveys and other statistical studies in the field. The objective is to establish a programme which reflects the priorities of stakeholders, and not only those of donors. Such a programme may thus build requisite capacities for the design, implementation and processing of data for the sake of publication and dissemination according to well defined schedule. While it is desirable to have a back-up capacity in the programme to handle one-off requests, the overarching objective is to inform stakeholders of planned activities and ensure that national priorities are not pushed to the back seat while those of donor agencies or others take the front seat simply because they provide immediate funding.
• Enhancing strategic organization, management and planning
  Priority should be given to improving the management and organization of the statistical system. The objective is to correct the shortcomings identified during the evaluation of the organizational set-up and internal management. Improved management will be achieved primarily by strengthening the financial and budget management system.
• Human resource development
  This implies defining an appropriate human resource development plan to make the most of scarce skills and expertise and sharpen their skills on a regular basis through continuous training. Human resource development should be integrated into the strategic plan and management process.
• Improving infrastructure and equipment
  This component seeks to develop a programme for upgrading the facilities and equipment of all the stakeholders of the statistical system to strengthen capacity and use information technologies (computers, communication networks and systems), software and staff capacity to install, operate and maintain equipment.
• Improving statistical products and public relations
  Emphasis will be laid on improving relations with users by way of easy communication with a view to improving products and performance. The objective is to improve the format and design of products, improve user access and simplify the use of data for planning and decision-making.
• Institutional arrangements
  As the statistical system becomes complex, it may be necessary to review its institutional structure. The proposed guidelines should also include specific objectives concerning institutional development. Many States are currently implementing reforms to shield the central statistical body from direct political control. This is a positive development as it leaves very little room for doctoring statistical findings and increases public confidence in the various products. Such changes may equally contribute to flexibility and accountability in the system, for instance, by introducing independent audit and reporting. However, it will be worth providing the requisite human and financial resources to the central statistical body for the production of public statistics.

International support and technical and financial partners

Generally, the community of technical and financial partners is increasingly interested in supporting data collection activities, particularly for PRSP and MDG monitoring. Many have developed specific programmes to support capacity building in the area of statistics (see annex 5). In the past years there has been renewed interest in measuring the impact of poverty reduction activities as evidenced nowadays by funding, support programmes and projects for statistical development.