Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No: PAD684

INTERNATIONAL BANK FOR RECONSTRUCTION AND DEVELOPMENT

PROJECT APPRAISAL DOCUMENT

ON A

PROPOSED GRANT

IN THE AMOUNT OF EUR 67.62 MILLION

(US$93.32 MILLION EQUIVALENT)

TO THE

GOVERNMENT OF EGYPT

FOR AN

EMERGENCY EMPLOYMENT INVESTMENT PROJECT

May 25, 2014

Social Protection, Human Development

Middle East and North Africa Region

This document has a restricted distribution and may be used by recipients only in the

performance of their official duties. Its contents may not otherwise be disclosed without World

Bank authorization.

Pub

lic D

iscl

osur

e A

utho

rized

Pub

lic D

iscl

osur

e A

utho

rized

Pub

lic D

iscl

osur

e A

utho

rized

Pub

lic D

iscl

osur

e A

utho

rized

CURRENCY EQUIVALENTS

(Exchange Rate Effective March 31, 2014)

Currency Unit = EUR

EUR1 = US$1.38

US$1

US$1

=

=

EUR0.72

EGP6.97

FISCAL YEAR

January 1 – December 31

ABBREVIATIONS AND ACRONYMS

BD Bidding Document IA Implementing Agency

CDA Community Development Association IFR Interim Financial Report

DA Designated Account IVE Independent Verification Expert

EEIP Emergency Employment Investment

Project

M&E Monitoring and Evaluation

EGP Egyptian Pounds MIS Management Information System

ELIIP Emergency Labor Intensive Investment

Project

NCB National Competitive Bidding

EMP Environmental Management Plan NGO Non-Governmental Organization

ESIA Environmental and Social Impact

Assessment

PDO Project Development Objectives

ESSAF Environmental and Social Screening and

Assessment Framework

PIU Project Implementation Unit

EU European Union PWP Public Works Project

FM Financial Management RFP Request for Proposal

GDP Gross Domestic Product RO Regional Officer

GoE Government of Egypt SA Sponsoring Agency

HCD Human and Community Development

Central Sector

SFD Social Fund for Development

HIECS Household Income and Expenditure and

Consumption Survey

Regional Vice President: Inger Andersen

Country Director: Hartwig Schafer

Acting Sector Director: Enis Baris

Sector Manager: Yasser El Gammal

Task Team Leader: Afrah Al-Ahmadi

EGYPT, ARAB REPUBLIC OF

Emergency Employment Investment Project

TABLE OF CONTENTS

Page

I. STRATEGIC CONTEXT .................................................................................................1

A. Introduction ................................................................................................................... 1

B. Country Context ............................................................................................................ 1

C. Sectoral and Institutional Context ................................................................................. 2

D. Higher Level Objectives to which the Project Contributes .......................................... 3

II. PROJECT DEVELOPMENT OBJECTIVES (PDO) ....................................................4

Project Beneficiaries ........................................................................................................... 4

PDO Level Results Indicators ............................................................................................. 5

III. PROJECT DESCRIPTION ..............................................................................................5

A. Project Components ...................................................................................................... 5

B. Project Financing .......................................................................................................... 6

Project Cost and Financing ................................................................................................. 7

C. Lessons Learned and Reflected in the Project Design .................................................. 7

IV. IMPLEMENTATION .......................................................................................................9

A. Institutional and Implementation Arrangements .......................................................... 9

B. Results Monitoring and Evaluation .............................................................................. 9

C. Sustainability............................................................................................................... 10

V. KEY RISKS AND MITIGATION MEASURES ..........................................................10

A. Risk Ratings Summary Table ..................................................................................... 10

B. Overall Risk Rating Explanation ................................................................................ 10

VI. APPRAISAL SUMMARY ..............................................................................................11

A. Economic and Financial Analysis .............................................................................. 11

B. Technical ..................................................................................................................... 13

C. Financial Management ................................................................................................ 14

D. Procurement ................................................................................................................ 15

E. Social (including Safeguards) ..................................................................................... 15

F. Environment (including Safeguards) .......................................................................... 16

Annex 1: Results Framework and Monitoring .........................................................................17

Annex 2: Detailed Project Description .......................................................................................22

Annex 3: Implementation Arrangements ..................................................................................26

Annex 4: Operational Risk Assessment Framework (ORAF) .................................................41

PAD DATA SHEET

Egypt, Arab Republic of

Emergency Employment Investment Project (P146143)

PROJECT APPRAISAL DOCUMENT

MIDDLE EAST AND NORTH AFRICA

MNSSP

Report No.: PAD684

Basic Information

Project ID EA Category Team Leader

P146143 B - Partial Assessment Afrah Al-Ahmadi

Lending Instrument Fragile and/or Capacity Constraints [X]

Investment Project Financing Financial Intermediaries [ ]

Series of Projects [ ]

Expected Effectiveness Date Expected Closing Date

31-July-2014 02-January-2018

Joint IFC: No

Sector Manager Sector Director Country Director Regional Vice President

Yasser El-Gammal Enis Baris Hartwig Schafer Inger Andersen

Recipient: Government of Egypt, Ministry of International Cooperation

Responsible Agency: SOCIAL FUND FOR DEVELOPMENT

Contact: Ms. Hanaa El Hilaly Title: Acting Managing Director

Telephone No.: 202-376-222-55 Email: hanaa_elhilaly@sfdegypt.net

Approval Authority

Approval Authority: RVP Decision

Please explain: As per the Large RETF Grant Procedures, the project is subject to RVP approval

Project Financing Data(in USD Million)

[ ] Loan [X] Grant [ ] Guarantee

[ ] Credit [ ] IDA Grant [ ] Other

Total Project Cost: 93,323,880 Total Bank Financing: 0.00

Financing Gap: 0.00

Financing Source Amount

Recipient 0.00

MNA VPU Free-standing Trust Funds 93.32

Total 93.32

Expected Disbursements (in USD Million)

Fiscal Year 2015 2016 2017 2018

Annual 28.98 26.22 26.22 11.90

Cumulative 28.98 55.20 81.42 93.32

Proposed Development Objective(s)

The project development objective is to: i) create short-term employment opportunities for the unemployed,

unskilled and semi-skilled workers in selected locations in Egypt; ii) contribute to the creation and/or

maintenance of community infrastructure and services; iii) improve access to basic infrastructure and

community services among the target population; and iv) improve the employability of young men and

women through short-term training or other support services to facilitate transitions to wage and self-

employment.

Components

Component Name Cost (USD Millions)

Component 1: Employment-intensive Small-scale Infrastructure

Sub-projects

1.35

Component 2: Intensive Community Service Sub-projects and

Youth Employment Activities

78.47

Component 3: Improving Workers’ Employability 8.12

Component 4: Project Implementation1 and Capacity Building 4.73

Contingency 0.65

Institutional Data

Sector Board

Social Protection

Sectors / Climate Change

Sector (Maximum 5 and total % must equal 100)

Major Sector Sector % Adaptation

Co-benefits %

Mitigation Co-

benefits %

Health and other social services Other social services 99

Public Administration, Law, and Justice Public administration-

Other social services

1

1 Including EU visibility activities.

Total 100

I certify that there is no Adaptation and Mitigation Climate Change Co-benefits information applicable to

this project.

Themes

Theme (Maximum 5 and total % must equal 100)

Major theme Theme %

Social protection and risk management Social safety nets 60

Social protection and risk management Improving labor markets 25

Social protection and risk management Other social protection and risk

management

15

Total 100

Compliance

Policy

Does the project depart from the CAS in content or in other significant respects? Yes [ ] No [X]

Does the project require any waivers of Bank policies? Yes [ ] No [X]

Have these been approved by Bank management? Yes [X] No [ ]

Is approval for any policy waiver sought from the Board? Yes [ ] No [X]

Does the project meet the Regional criteria for readiness for implementation? Yes [X] No [ ]

Safeguard Policies Triggered by the Project Yes No

Environmental Assessment OP/BP 4.01 X

Natural Habitats OP/BP 4.04 X

Forests OP/BP 4.36 X

Pest Management OP 4.09 X

Physical Cultural Resources OP/BP 4.11 X

Indigenous Peoples OP/BP 4.10 X

Involuntary Resettlement OP/BP 4.12 X

Safety of Dams OP/BP 4.37 X

Projects on International Waterways OP/BP 7.50 X

Projects in Disputed Areas OP/BP 7.60 X

Conditions and Legal Covenants

Name Recurrent Due Date Frequency

(Project Agreement)

Schedule

Section I.C

For the purposes of proper implementation

of the Project, the Project Implementing

Entity shall, not later than six months after

the Effective Date, appoint for the

duration of Project implementation, and on

terms and conditions mutually agreed upon

between the World Bank and the Project

Implementing Agency, an Independent

Verification Expert (IVE) to assess and

verify that: (i) Project outcomes have been

met; and (ii) Sub-projects are implemented

and maintained in accordance with the

requirements of the Maintenance Manuals,

the ESSAF and the Operations Manual.

Not later than 6

months after

Effectiveness Date

Assessments to

be undertaken at

least twice a

year.

(EU Grant Agreement)

Schedule II, Section IV. B

In the event that the ESSAF requires

preparation of additional sector specific

EIA/EMP and/ or Environmental

Safeguard Guidelines, these documents

should be furnished to the World Bank for

no objection.

In the event new

sectors are

introduced to the

Infrastructure

Component.

In the event new

sectors are

introduced to

the

Infrastructure

Component.

Team Composition

Bank Staff

Name Title Specialization Unit

Afrah Alawi Al-Ahmadi Senior Social Protection

Specialist

Team Lead MNSHD

Haneen Ismail Sayed Lead Operations Officer Team Lead (at Concept Stage) MNSSP

Syed I. Ahmed Lead Counsel Lead Counsel LEGAM

Mazhar Farid Legal Analyst Legal Analyst LEGAM

Amy Champion Operations Analyst Operations Analyst MNSHH

Mira Hong Senior Operations

Officer

Senior Operations Officer MNSSP

David A. Robalino Lead Economist Lead Economist HDNSP

Chaogang Wang Senior Social

Development Specialist

Senior Social Development Specialist MNSSU

Maiada Mahmoud Kassem Finance Officer Finance Officer CTRLA

Elena Gagieva-Petrova Operations Analyst Operations and Portfolio Analyst MNSHD

Alaa Ahmed Sarhan Senior Environmental

Economist

Senior Environmental Economist MNSEE

Jamal Abdulla Abdulaziz Senior Procurement

Specialist

Senior Procurement Specialist MNAPC

Kevin Marcus Hempel Consultant Youth Employment Specialist MNSSP

Sanjay Agarwal Senior Social

Development Specialist

Senior Social Development Specialist MNSSD

Wael Ahmed Elshabrawy Financial Management

Analyst

Financial Management Analyst MNAFM

Amr S. Moubarak E T Consultant Social Protection Economist MNSSP

Moustafa Abdalla Operations Officer Operations Officer MNSSP

Fareeba Mahmoud Sr. Operations Officer Sr. Operations Officer MNADE

Locations

Country First

Administr

ative

Division

Location Planned Actual Comments

Arab Republic of

Egypt

Districts The poorest

districts

Districts will be

identified based

on poverty

mapping using

national data

Districts will be

identified based on

poverty mapping using

national data

1

I. STRATEGIC CONTEXT

A. Introduction

1. The proposed Emergency Employment Investment Project (EEIP) is a grant in the amount of

EUR 67.62 million (US$93.32million equivalent) to be financed by the European Union (EU), as

stand-alone complementary financing to the World Bank-funded Emergency Labor Intensive

Investment Project (ELIIP; Ln. 8173 in the amount of US$200 million). The need for this

complementary support stems from the ongoing political and economic situation that has

exacerbated existing unemployment, particularly among women and youth who have been

disproportionately affected, and heightened the risk of causing further deep divisions to develop

throughout society. The operation, while self-standing, is directly built on by the approach

adopted in the World Bank’s ongoing intervention under ELIIP, and is intended to coordinate

donor assistance effectively. The proposed project will generate short-term employment,

particularly for the population in poor regions and targeted youth.

B. Country Context

2. Since the revolution, Egypt’s political instability has contributed to economic turmoil where

prospects remain uncertain. Since the removal of President Morsi in July 2013, a new political

roadmap has been set in motion with an ambitious timeline of twelve months that includes

amendments to the suspended 2012 constitution, holding a referendum to approve the amended

constitution, and conducting parliamentary and presidential elections. The referendum on the

amended constitution was carried out on January 14-15, 2014, while more recently some changes

have been introduced in the political roadmap sequence, with presidential elections preceding

parliamentary elections. The amended constitution leaves the decision to the interim president on

when to hold elections, yet it states that both elections must take place within six months (by

mid-July 2014). The uncertain outcomes of these political developments are affecting the

economic outlook.

3. Although financial market uncertainty has been partly mitigated by a package of financial

assistance pledged by Arab Gulf states, expected economic growth remains weak. An

unprecedented series of aid packages totaling US$16 billion have been earmarked in support of

Egypt. These include cash grants of US$4 billion, interest-free deposits of US$6 billion with the

Central Bank of Egypt, and project financing of US$3 billion. The impact of such packages can

be seen in the short-term fiscal planning where a stimulus approach has been signaled by the

current government.

4. Economic performance continues to underperform in the short-term, while prospects remain

uncertain. Output growth remained subdued during fiscal year 2013 at 2.1 percent, similar to the

year before (approximately 2.2 percent). This has pushed up the unemployment rate, which

reached over 13.3 percent in June 2013. Sizeable stimulus packages totaling about three percent

of GDP are being implemented or have been announced, mainly through a sharp increase in

public investment and a near doubling of the minimum wage for public sector workers. These

commitments would entail substantial additional fiscal costs, and any spill-over could negatively

impact private sector growth.

2

5. Against a back-drop of shrinking investments and growth in real terms, the employment and

poverty situation is expected to deteriorate, and human capital indicators are at risk of worsening.

As has traditionally been the case, the working poor make up the majority of the poor in Egypt.

Those who are vulnerable (about 17 percent) are dependent on unreliable sources of income and

seasonal work. This is especially evident during crises. During the fuel and food crisis in

2008/2009, as many as 5.1 million Egyptians were severely food deprived. Furthermore, 31

million (around 40 percent of the population) were poor or near poor.

6. The Government of Egypt (GoE) aims to smooth consumption for the poor and vulnerable,

increase the skills and employability of low-skilled labor, and to promote social inclusion. The

Government aims to raise human capital formation through training programs and by increasing

labor productivity. The GoE has initiated a program for short-term employment creation in poor

areas to increase access to income opportunities and maintain social stability during the

transition period. This programmatic approach has already begun through the ongoing ELIIP.

The ELIIP supports the implementation of a public works and community service program

which adopts labor-intensive methods to address Egypt’s short-term employment needs. The

proposed EEIP will similarly support the creation of short-term employment opportunities for

unemployed workers in selected locations in Egypt, as well as lay the foundation for the creation

of more sustainable jobs. This will be carried out through the creation and/or maintenance of

community services and infrastructure using labor-intensive techniques and through

employability programs for youth in urban and rural areas.

C. Situations of Urgent Need of Assistance or Capacity Constraints

7. The proposed operation is being processed under emergency procedures based on the

“Fragility within a non-fragile country” policy (as defined in paragraph 11 of World Bank

Guidelines for OP. 10.00: Situations of Urgent Need of Assistance or Capacity Constraints). This

recognizes the fragility of the situation in Egypt which is experiencing instability and rapidly

changing conditions. The nature of these conditions in Egypt has deepened the ongoing

economic crisis and amplified overall fragility, leading to high unemployment and heightening

the risk of deep divisions developing further throughout society. The proposed project is highly

relevant and planned activities to generate short-term employment, particularly for the targeted

youth, are urgently needed.

D. Sectoral and Institutional Context

8. Egypt’s social protection system, broadly defined, accounts for a substantial share of public

spending, but does not have a commensurate impact on poverty reduction or human capital

development. Energy subsidies, although not strictly considered as social protection measures,

are available for all consumers and producers, and account for the largest share of spending at

around six percent of GDP, followed by food subsidies at around two percent of GDP. Spending

on ration card subsidies comprised about 0.5 percent of GDP, while expenditures on cash

transfers to the poor were about 0.1 percent of GDP in 2010. Despite these expenditures, Egypt’s

human development indicators remain poor and close to half of the population (49 percent)

remains poor or vulnerable, with a large number of people clustered just above the poverty line.

3

9. Even before the food, fuel and financial crises hit, the Government had taken measures to

expand its cash transfer programs; however, policies aimed at helping households withstand the

effects of the crisis were not sufficient to prevent an increase in poverty. The Government

increased both the number of beneficiary households in the social solidarity program (the

unconditional cash transfer program) and the value of their monthly cash payment. It also

extended additional cash assistance to beneficiary families with children enrolled in school (EGP

20 per child for a maximum of four children). However, the number of beneficiaries remained

far below the estimated poverty headcount, and the amount of cash benefits well below what was

needed to lift many of the recipients out of poverty. Furthermore, the targeting approach (which

is largely a mixture of self-targeting, income and categorical targeting) does not address errors

around inclusion of the non-poor and exclusion of the poor.

10. Egypt’s labor market continues to face many difficulties. Official unemployment figures in

Egypt reached 13.3 percent in June 2013—more than four percentage points higher than its level

in the second quarter of 2010. Out of the 3.6 million unemployed persons in Egypt, around

74 percent are youth aged 18-29 years. By June 2013, male and female unemployment rates had

increased to 9.8 percent and 25 percent, respectively. Furthermore, the informal sector is

estimated at 58 percent of total private sector employment, having risen sharply between 1998

and 2006. Although it can be assumed that the impact is larger on the informal sector given that

it is private, less information is available on the extent to which the sector and the informally

self-employed are impacted.

11. The current objectives of the interim government, following the July 2013 events, signal a

commitment to generate jobs for low-income families. A statement by the deputy Prime Minister

for Economic Affairs and the Minister of International Cooperation highlighted the need to

create jobs for low income families as one of six main priorities, while a labor-intensive Job

Creation Program through the Social Fund for Development (SFD) was part of the Package of

Urgent Benefits for Citizens, one of the five pillars of the Government’s Program for Economic

Development and Social Justice during the transitional period.

12. The proposed EEIP supports the scaling-up of Egypt’s public works and community services

programs, and the implementation of programs that would complement the cash-for-work

activities by facilitating transitions into wage- and self-employment. Even though the majority of

the project activities are aimed at meeting the needs of the emergency situation, the project will

also pilot programs to support the employability of unemployed rural and urban youth. In

addition, the project will help build the institutional capacity for public works and community

services programs in Egypt, a tool that is likely to be used frequently in the medium term. The

GoE is discussing and exploring options for the inclusion of public works programs as an

essential part of Egypt’s safety net system, to be scaled up or down quickly to respond to shocks

based on the country’s situation, and which continues to be a tool for smoothing consumption,

providing temporary income to the working poor, and an opportunity for skills development.

E. Higher Level Objectives to which the Project Contributes

13. While the project is expected to achieve immediate results in terms of the provision of short-

term employment opportunities and safety nets to the targeted group, it also supports instituting

and building national capacity in the design and delivery of labor-intensive works as a key tool

4

for a targeted safety net. This will assist Egypt to move away from an inefficient and untargeted

social protection system to a more cost-effective and targeted one, which would potentially have

a higher impact on poverty reduction and protect against falling into extreme poverty. By

targeting the poorest districts, the project would make higher investment in Upper Egypt,

contributing to the inclusion agenda and to the World Bank’s twin goals of reducing extreme

poverty and promoting shared prosperity.

14. This intervention establishes a clear line of sight to the World Bank’s twin goals. Activities

target poor and most vulnerable Egyptians and aim to provide short-term employment for the

growing ranks of unemployed, unskilled and semi-skilled workers. The project also aims to

provide the young people and women, who comprise a disproportionate share of the

unemployed, with the skills and training needed to help them to secure longer-term employment.

Finally, the project aims to help boost the income of the poorest in society by supporting the

development and maintenance of community assets that increase physical capacity and that

encourage local economic development.

15. The expansion of labor-intensive public works projects and community service projects

would also enhance the social and economic infrastructure base. In partnership with non-

governmental organizations (NGOs) and the private sector, the youth employability program

supported by the project would be tested and evaluated for its impact and scalability to address

the challenging issue of youth unemployment and idleness, a significant problem in Egypt and

several other countries in the region. The project is consistent with the existing Egypt ISN

(Report no. 66443-EG, May 31, 2012), MNA Regional Strategy Update (Report no. 59364,

January 22, 2013), and contributes to objective 3.4 “develop targeted and sustainable safety

nets” of the third Strategic Objective – Inclusion – in the proposed Country Partnership Strategy

(2015-18).

16. Project activities will be conducted in selected poor urban and rural areas nationwide. The

locations will draw on Egypt’s poverty map and other poverty targeting tools, as well as

locations with the highest rates of unemployment.

II. PROJECT DEVELOPMENT OBJECTIVES (PDO)

17. The project objectives are to: i) create short-term employment opportunities for the

unemployed, unskilled and semi-skilled workers in selected locations in Egypt; ii) contribute to

the creation and/or maintenance of community infrastructure and services; iii) improve access to

basic infrastructure and community services among target population; and iv) improve the

employability of young men and women through short-term training or other support services to

facilitate transitions to wage and self-employment.

Project Beneficiaries

18. The main project beneficiaries will be the unemployed, unskilled and semi-skilled, poor and

vulnerable, including youth and women.

5

PDO Level Results Indicators

19. The outcome indicators are:

a. Number of direct beneficiaries of the workfare2 programs

3 (disaggregated by

gender and age group)

b. Number of person-days of work created through workfare sub-projects

(disaggregated by gender and age group)

c. Job placement rate (wage or self-employment) of those enrolled in the youth

employability programs (gender and age disaggregated)

III. PROJECT DESCRIPTION

A. Project Components

20. The project consists of four components:

Component 1: Employment-intensive Small-scale Infrastructure Sub-projects (EUR 0.980

million or US$1.35 million equivalent)

21. This component will finance employment-intensive small infrastructure. Specifically, the

project will support labor-intensive small scale local public works sub-projects which could

include, but are not limited to: canal weed reduction; Nile River bank protection; pavement of

rural roads; and school rehabilitation. These sub-projects could be demand-driven, requested by

the local government at the governorate level, or supply driven, requested by a central ministry

based on needs, depending on the proactivity of local governments. Priority will be given to sub-

projects with higher levels of labor intensity. Implementation of the sub-projects will be

contracted out to private contractors. Beyond the geographical targeting, the operations adopt

self-targeting methodologies via wage monitoring to ensure that they do not attract the non-poor.

Infrastructure operations and maintenance procedures will be defined and agreed upon with

beneficiaries and other stakeholders during the sub-project design phase (e.g., between SFD,

ministries and governorates).

Component 2: Intensive Community Service Sub-projects and Youth Employment

Activities (EUR 56.863 million or US$78.47 million equivalent)

22. This component will support labor-intensive community service sub-projects through the

provision of grants to local communities (NGOs and Community Development Associations

(CDAs)) for sub-projects addressing areas including, but not limited to: (a) cleanliness and

environmental awareness campaigns in villages and local areas; (b) early childhood education;

(c) mother and child health support, e.g., facilitating access to health services, awareness and

home visit programs; (d) illiteracy eradication activities; and (e) youth engagement in

community initiatives (e.g., community mobilization and citizen engagement activities) in rural

2 Workfare is defined as the labor-intensive infrastructure and community service sub-projects.

3 Same as World Bank core indicator “Beneficiaries of Social Safety Nets programs”.

6

and urban areas. A high share of female beneficiaries can be expected, given that social service

sub-projects tend to employ unemployed women. Priority will be given to sub-projects with

higher levels of labor intensity.

Component 3: Improving Workers’ Employability (EUR 5.882 million or US$8.12 million

equivalent)

23. This component will finance the piloting of two types of youth employment support

activities, one aimed primarily at youth in urban areas and the second for youth in rural areas, to

facilitate transitions into wage- or self-employment. A comprehensive package of training (basic,

technical, life skills, and on-the-job), job-search assistance, and wage or training subsidies to

facilitate the transition into wage-employment will be piloted for urban youth, in close

collaboration with employers. For rural youth, the component will finance an integrated set of

services (training, financing, advisory, and access to markets and value chains) to facilitate the

transition into self-employment. These services will be developed based on market research or

feasibility studies already available or to be carried out during the preparation of the respective

sub-projects.

24. Sub-projects will be implemented by NGOs in urban and rural areas. Beneficiaries will be

primarily young men and women in the project’s targeted districts who are out of school and out

of (full time) work. Young women will be specifically targeted by making female participation

an evaluation criterion during the request for proposals, and assessing proposed design features

to attract female participants (e.g., female-only classes, child care, and parent outreach). Further

details are available in Annexes 2 and 3.

Component 4: Project Implementation and Capacity Building (EUR 3.43 million or

US$4.73 million equivalent)

25. The implementation support program for the project includes: (a) training and consultancies

to support project management, monitoring and evaluation, financial management and

procurement; (b) financing of public information activities, EU visibility, communication and

social mobilization strategy development and implementation; (c) technical verification for

project outputs, and compliance of services provided for the above three project components; and

(d) capacity building as needed for SFD and governorate staff, as well as for the implementing

NGOs. Training may be provided nationally through consultants or training institutions or

internationally for specialized topics. The component may finance: consultancy, training cost

(tuition, travel, accommodation, per diem, etc.), non-consultancy services, material, office

supplies, etc.

Project Financing

26. The proposed EEIP will be financed by an EU grant in the amount of EUR 67.626 million as

stand-alone complementary financing to the World Bank-funded ELIIP (US$200 million).

7

Project Cost and Financing

27. The table below provides the distribution of project funds between components:

Project Components

Project cost

(EUR ’000) Financing

(EUR ’000)

Project

Cost (US$

‘000)

%

Financing

1.Employment-intensive Small-scale

Infrastructure Sub-projects

2. Intensive Community Service Sub-

projects and Youth Employment Activities

3. Improving Workers’ Employability

4. Project Implementation and Capacity

Building

- EU Visibility

Contingency*

980

56,863

5,882

2,941

490

470

980

56,863

5,882

2,941

490

470

1,352

78,471

8,117

4,059

676

649

100

100

100

100

100

100

Total Financing Required 67,626 67,626 93,324 100

*The utilization of the contingency budget is subject to the EU Delegation written prior approval.

B. Lessons Learned and Reflected in the Project Design

28. The project builds on lessons learned from previous World Bank projects around the

world, as well as from the early lessons of ELIIP and SFD’s historical experience in

implementing public works projects. In the last decade, public works programs have become

one of the preferred instruments to address temporary work shortages brought after a shock. The

public works programs launched in response to the macroeconomic crisis in East Asia in 1997

and in Latin America in 2002, and those established after the 2005 tsunami that affected many

Asian countries, are examples of programs set up to mitigate the negative effects of a shock

among the most vulnerable populations. Evidence from evaluations of these projects points to the

ability of public works and employment training programs to mitigate covariate shocks,

idiosyncratic shocks, and smooth consumption.

29. Though it is argued in the literature that the wage rate is a critical design feature in

public works programs, conclusions from international experience related to setting the

wage rate as a means to improve targeting are mixed and context specific. In principle, self-

selection of the most in need can be encouraged if the wage paid by the public works program is

set at slightly below the market wage for unskilled labor. In large scale programs in Chile, South

Africa, or India, governments vary widely in their ability to set a wage rate that is consistent with

self-selection. Egyptian experience to date (including ELIIP) shows that dependence on “self-

selection” or self-targeting alone as the key method of targeting is not feasible because

contractors may not have the capacity to target and because of the high rate of unemployment

and poverty. A combined targeting mechanism will be used in EEIP to target project

8

interventions, including geographic targeting, selection of small sub-projects of the type that

creates employment that is less attractive to the less in need, as well as wage setting below the

local market rate (where credible information is available and can be monitored by SFD).

Additionally, experience from many similar programs, including ELIIP, is showing that it is

difficult to achieve more than a 25-30 percent labor share in certain types of infrastructure sub-

projects (e.g., housing, school construction). The project has therefore set a labor share of 40

percent in the case of infrastructure and 70 percent in the case of social services as determining

criteria in the selection of sub-projects.

30. The implementation arrangements build on SFD’s historic experience in implementing

public works projects, whereby partnership with local implementing agencies (NGOs,

CDAs and local governments) has been a major strength of the program. Over the years and

through ELIIP, SFD partnership with these agencies has contributed to building capacity and

outreach to local communities. This has also enabled Egypt to respond faster to the recent crisis

(ELIIP) and expand coverage under EEIP. This is consistent with international experience

following the global food crisis in 2008 when it was found that countries with established safety

net institutions were more capable of responding to the crisis than those who did not have such

institutions.

31. Investments in monitoring and evaluation systems facilitate the sub-project evaluation

process, provide feedback, and are an essential management and planning tool. In order to

address the weaknesses in monitoring and evaluation (M&E) experienced under previous

projects, SFD’s management information system (MIS) has been upgraded and continues to

improve as experience from ELIIP is being accumulated. For example, expanding the MIS to

monitor individual beneficiary data (rather than just aggregate data) in EEIP will support

monitoring, improve beneficiary targeting, and inform evaluation design. Continuous

improvement of the monitoring tools, including MIS, enables users to receive real-time

information through the entire sub-project cycle.

32. With regard to promoting wage-employment interventions as planned in this project,

evaluations from Latin America’s Jovenes en Accion program targeted to vulnerable youth

suggest that vocational and life skills training combined with internships in private firms

have the potential to improve employment and earnings. For instance, the Jovenes en Accion

program in Colombia reached over 20,000 youth per year, and increased earnings by 10-20

percent. Similarly, comprehensive entrepreneurship support programs are showing promising

results in many countries. For example, the Girls Empowered by Microfranchise program

targeted at girls aged 17-19 in Kenya and elsewhere provides business and life skills training,

mentoring, access to financial services, and start-up grants, and links beneficiaries directly to

markets. This evidence is in line with SFD’s recent on-the-ground assessments of its skills

training programs, which suggest that life skills and other support services need to be part of

youth employment programs to meet employer needs and increase youth retention.

9

IV. IMPLEMENTATION

A. Institutional and Implementation Arrangements

33. The implementation arrangements for this project will be similar to those of ELIIP, with the

SFD as the main implementing agency for the proposed project. The SFD was established as a

legally autonomous development organization and has over 20 years track record of providing

support to needy and under-deserved communities. Established in 1991, the initial key objective

of SFD was to help mitigate the negative effects of Egypt structural adjustment programs. In

1999, the SFD obtained a permanent mandate to focus on job creation.

34. The SFD will be responsible for the overall project, using its own fiduciary management

systems that are in compliance with World Bank regulations and procedures. The SFD will rely

on its Human and Community Development Central Sector (HCD) and the capacities of the

Financial Management Department, the Internal Audit Department, the Environmental

Department, and the Planning, Monitoring, and Evaluation Department in implementing this

project. The SFD will be responsible for implementing and coordinating the activities of the

project with the support of its 27 regional offices which will monitor and report on project

progress.

35. As with the ELIIP, the SFD will be responsible for financial management and reporting,

using systems and procedures acceptable to the World Bank. For the procurement of

infrastructure activities, SFD will be co-responsible with the sponsoring agencies (ministries and

governorates), whereas works contracts will be co-signed. As for the procurement under

Components 2 and 3, similar to ELIIP, SFD will provide grants and/or procures contractual

services of NGOs and CDAs.

B. Results Monitoring and Evaluation

36. Monitoring will be carried out by the SFD’s internal monitoring system using the SFD MIS.

The Project will finance support to conduct mid-term and end-of-project evaluations.

Evaluations will cover: a) targeting, processes and beneficiary satisfaction evaluation of

Components 1 and 2; and b) impact and cost effectiveness evaluation of the pilot youth

employability programs (Component 3), to assess the effectiveness of different approaches in

securing employment and increasing incomes of the beneficiaries. These evaluations will serve

the purposes of correcting processes as needed (in the case of Components 1 and 2), and assist

the GoE in assessing the potential for scaling up the workfare activities as an essential part of

Egypt’s social safety net program.

37. Periodic technical verification will be carried out on a semi-annual basis during the life of the

Project, using an Independent Verification Expert (IVE) and NGOs. The IVE will verify: (i) the

intermediate sectoral outcomes; and (ii) the output indicators. Additionally, the project will

undertake a client satisfaction and process evaluation, which will assess the processes of

implementing the program, as well as client satisfaction rates for community social services sub-

projects. Social accountability measures, as described in section E, will also provide tools for

monitoring performance from the beneficiary perspective so that corrective measures can be

introduced as appropriate.

10

C. Sustainability

38. The GoE is committed to extending services to all poor citizens, using the SFD as a major

instrument. The sustainability of SFD investments are ensured by features like community

engagement, partnership with local governments and ensuring that relevant sectoral authorities

agree to and provide recurrent cost and maintenance of services supported by SFD. Furthermore,

the GoE is committed to expanding pro-poor safety nets programs and addressing the short-term

as well as the longer-term challenges of unemployment, especially among the poor youth. The

project provides the opportunity to put in place and build national capacity to design and

implement best practice programs’ approaches. These programs will be evaluated to inform

policy on the most effective and efficient approaches to address the poverty and unemployment

challenges of the poor.

V. KEY RISKS AND MITIGATION MEASURES

A. Risk Ratings Summary Table

Risk Category Rating

Stakeholder Risk Substantial

Implementing Agency Risk

- Capacity Moderate

- Governance Substantial

Project Risk

- Design Substantial

- Social and Environmental Low

- Program and Donor Moderate

- Delivery Monitoring and Sustainability Moderate

Overall Implementation Risk Substantial

B. Overall Risk Rating Explanation

39. The overall risk rating for this Project is expected to be Substantial. The Project will be

implemented in a country where the political environment is still in transition. Mitigating

measures to address these risks include inter-alia: (i) a project design that focuses on poor areas

where the risk of major disruptions to project activities is lower; and (ii) selection of the SFD as

implementing agency—the SFD has considerable prior experience with implementing Bank-

financed projects, and is familiar with Bank policies and procedures; and (iii) fiduciary

safeguards are in place for the project to ensure effective oversight of the flow of funds and

procurement procedures. The procurement risk rating is ‘Moderate’ since capacity to carry out

procurement has been built within the SFD under the ongoing ELIIP. Moreover, an experienced

procurement advisor was hired under the ELIIP to help build procurement capacity and monitor

conformity with procedures used for selection of consulting services; and the SFD procurement

manual was updated to ensure clear definitions of roles and responsibilities and consistent

application of procedures.

11

VI. APPRAISAL SUMMARY

A. Economic and Financial Analysis

40. The EEIP aims to create short-term employment opportunities for vulnerable groups

including women and youth, improve access to community infrastructure and services and to

provide short-term training and employment services to facilitate the transition to wage and self-

employment. The project provides substantial resources that will directly complement the

ongoing World Bank-financed Emergency Labor Intensive Investment Project (ELIIP) and

which will, in the interests of sustaining an efficient and rapid response, adopt the approach and

proven implementation mechanisms developed under ELIIP.

41. Labor-intensive public works programs have been used in diverse country contexts

worldwide. There is increasing evidence that such counter-cyclical safety net instruments can

make an important contribution in mitigating a range of economic shocks that disproportionately

affect the poorest and most vulnerable. These programs can play an important role in reducing

vulnerability and provide immediate income support to poor families where there are large

numbers of unemployed or underemployed workers. An important complementary benefit of

public works projects is the generation of public goods and community assets for poor and

deprived communities. As in this case, public works and community service projects can

complement short-term employment opportunities with training and skills development to help

workers make the transition to longer-term or self-employment. Finally, international experience

indicates that public works programs can provide pathways that promote voice and participation,

improve social inclusion and equality particularly for women and youth, and smooth social

tensions.

42. There is a powerful rationale for public intervention to insure social risk, including the risk of

poverty, through the public provision of safety nets such as this program. The operation

addresses a market failure that stems from three interrelated factors: information asymmetries;

coordination failure; and, inability to achieve returns to scale. Information asymmetries exist

because an individual will always know more than a private insurer regarding their risk of

poverty and actions that might increase that risk. Without access to this information, a private

insurer would attempt to insure only the best risks (i.e. those at lowest risk of poverty) and

exclude those at the highest risk of poverty. This would result in a socially inefficient outcome.

Coordination failure in this instance is characterized by a situation where risk pooling would

result in a more socially beneficial outcome than individually insured risks. Failure to achieve

returns to scale results since the cost of risk-bearing cannot easily be reduced by sharing the risk

burden across a large population.

43. The World Bank has long been engaged in providing assistance the development and

strengthening of national social safety net programs worldwide. The impetus for both the

ongoing ELIIP project and this intervention stems from government requests for the Bank’s

technical and financial support in the design of social safety net mechanisms able to address the

country’s urgent need for short-term employment opportunities. In addition, the successful

implementation of ELIIP has helped to catalyze the grant support provided under this project,

enabling the expansion of ELIIP/EEIP activities in both scale and scope and in a coordinated

manner. While the SFD has a tradition of implementing public works programs, Bank expertise

12

will ensure the improvement of critical design features, such as labor intensity and targeting

accuracy.

44. Based on an analysis of wages for unskilled labor in rural and urban areas, the gross wage to

workers under EEIP is estimated at EGP 300, as this wage or below is unlikely to be attractive to

currently employed poor workers (i.e., below market wage). Assuming that targeted beneficiaries

cannot find work outside of EEIP and a wage ratio of 50 percent, it would take EGP 2 of

government funds to transfer EGP 1 to beneficiaries, i.e., a benefit-to-cost ratio of 50 percent.

This ratio is about double the country’s current poverty rate of 26 percent (2012/2013); that is,

the EEIP would provide more immediate benefit to the poor than a uniform, untargeted

allocation of the same budget across the population. This ratio further improves if accounting for

indirect benefits to the poor through the assets created. Adopting the same calculations carried

out for ELIIP, it would take EGP 1.04 in rural areas and EGP 1.4 in urban areas to increase

income of the poor by EGP 1. This ratio compares favorably with similar workfare programs

such as Argentina’s Trabajar, where it cost EGP 2.5 to improve incomes by EGP 1. Moreover,

since poverty rates have further increased since the preparation of ELIIP, the poor people would

benefit relatively more from the indirect benefits from assets created, thus further improving the

estimated benefit-cost ratio for EEIP.

45. With regards to Component 3, a comprehensive ex-ante analysis of beneficiaries who will be

supported is not possible. However, benefits from project investments are expected through

increases in employment rates, productivity, and income. While the evidence of active labor

market programs for youth is heterogeneous, similar interventions targeting low-income youth

have been able to achieve significant impacts. To measure project benefits, an impact evaluation

will be carried out for the youth employability component. The evaluation will quantify changes

in income and other economic benefits among participating youth compared to non-participants,

as well as potential effects on non-labor market outcomes (e.g., human capital investments,

mental health, etc.). The results from the impact evaluation will also feed into an ex-post cost-

benefit analysis of the supported subprojects to assess whether social benefits outweigh the costs

in order to inform potential scale-up. Overall, it is expected that average unit costs will range

between US$500 and US$1,500 for different subprojects. These costs are fully in line with

similar interventions to promote wage- and self-employment for vulnerable youth in other

countries4.

4 Latin America’s Jovenes programs had a unit cost between $600 and $2000. WB funded youth employment and

entrepreneurship projects in Morocco and Lebanon have estimated unit cost of approximately $800 and $1300

respectively. Liberia’s Empowerment of Adolescent Girls Programs has a unit cost of $1221 per girl for business

skill training and $1678 per girl for job skills training.

13

B. Technical

46. Global experience indicates that labor-intensive works programs can be an important

component of a safety net in response to a rapidly deteriorating employment and poverty

situation. Both ELIIP and EEIP are the main targeted safety net projects, and ELIIP experience is

demonstrating high demand that could not be met with ELIIP resources, thus, EEIP will provide

additional funds to the program. Experience has shown that, for the same level of investment in

local infrastructure and community services, the use of labor-based methods can create between

two and four times more employment (mostly unskilled), drop foreign exchange requirements by

50 to 60 percent, decrease overall costs by 10 to 30 percent, and reduce environmental impacts.5

The employment multiplier effect of such projects is at least 1.5 because of the injection of

money into the local economy (use of local materials and other inputs, salaries mainly spent on

basic needs). Many public works projects (PWPs) are now being established with a long-term

vision of being an integral part of the country’s social safety net (scalable PWPs that can be

extended during crises).

47. The project aims to accomplish other goals that go beyond the traditional role of PWPs. This

includes the delivery of community and social services, like mother and child health, illiteracy,

youth engagement, and skills training and employability services that will support the transition

of their participants into longer-term wage and self-employment opportunities. Therefore, the

program is not only a vehicle for short-term employment and infrastructure development, but

also offers its participants skills and experience which could enable them access future labor

market opportunities. For such linkages to be useful, it is important to undertake careful

assessment of the demand for skills, gender differentiated, so that the trained workers are

absorbed. The project aims to ensure this by involving the private sector as well as the NGO

sector in the identification of the demand and the delivery of services.

48. Targeting and Allocation of Funds. To increase the chances that the sub-projects will

improve living conditions for those least able to protect themselves against the economic shocks,

the locations for the sub-projects will be selected using Egypt’s poverty map taking into

consideration the readiness for implementation and the intensity of labor of the proposed sub-

projects. Geographic targeting is guided by the Egypt Poverty Map, which uses data from the

poverty survey and census. These have been used to generate SFD’s Poverty Targeting Toolkit,

which is being updated using the latest data of the 2010/11 Household Income and Expenditure

and Consumption Survey (HIECS) and the population projections of 2011 (from 2006 census).

Districts (Markaz) are ranked accordingly and a cut off line is determined by an index that is

weighted to the national poverty level. The ranking includes both rural and urban areas. Within

the selected districts, individual beneficiary targeting will be done by a combination of pre-

defined eligibility criteria and self-selection. The careful setting of the wage rate and

identification of sub-projects should ensure that project benefits favor poorer areas and

activities/sectors and are less attractive to non-target populations..

49. Private Contracting. In Egypt, it is common practice to use contractors to execute PWPs. The

Project will introduce one or more new methods for using contractors, including: (i) defining the

share of labor in each specific contract during the tendering process, and enforcing it;

5 Employment Intensive Investment Program, ILO, April 2005.

14

(ii) providing a list of laborers in each locality whom contractors could hire for any specific

activity; and (iii) asking contractors to specify percent of labor cost in each sub-project that they

plan to execute. Alternative ways to allow the Government to fix the wage level for contractors

to abide by will be explored. Contractors will be asked to ensure that the majority of their labor

is from within the area. Only if local labor is unavailable (as verified by SFD branch offices) will

contractors be permitted to use labor from nearby communities/areas, but not to exceed 50

percent. These arrangements are provisioned in the contracts, and regularly monitored by SFD

branch offices and, as well as by the IVE.

50. Flexibility and Quick Scale-Up. The team examined the suggested design features that would

enable flexibility and quick scaling up of workfare programs during periods of economic

hardship. The most important opportunity that the proposed project provides is the potential to

move toward greater efficiency, targeting accuracy, and labor intensity. This will then be

evaluated, in the case of a need to scale-up so that the SFD, as a potential organization to

implement this safety net approach, would be in a position to respond quickly. Given its

implementation track record, existing regional offices and name recognition, scaling up would

not be a challenge.

51. Technical viability of SFD. Technical viability has been demonstrated by over 20 years of

successful public works, community and local development activity in Egypt. Investment cost

estimates, physical contingencies, prices and estimates of inputs and outputs are based on actual

historical data under the three previous IDA-financed projects, as well as other donor financed

projects. For public works, the SFD uses standardized designs which have been approved by the

relevant line ministries. These standardized designs include engineering, technical, financial, and

economic feasibility aspects, operations and maintenance, simple environmental guidelines and

cost parameters. Field evidence demonstrates that these simple, practical standards have

enhanced sub-project quality, sustainability and cost-effectiveness. All sub-projects will be

screened by SFD staff and intermediary agencies. The sponsoring agency will be able to contract

technical assistance to help in the design and implementation of sub-projects, as needed.

Training programs are also being offered to develop the capacity of the implementing partners to

prepare, implement, operate, and maintain sub-projects as well as to acquaint them with the

Egypt Environmental Affairs Agency’s environmental regulations.

C. Financial Management

52. SFD will be responsible for financial management and reporting, using systems and

procedures acceptable to IBRD. Complete accounting records will be maintained for daily

management and for periodic audits and reviews. Financial statements will be audited annually,

following international standards on auditing, by qualified independent external auditors

acceptable to the Bank. The Bank expects the SFD to submit terms of reference for the project

external audit for the World Bank’s prior review within three months of effectiveness. Audit

reports will be submitted to the World Bank within six months from the end of each fiscal year

(January 1 to December 31). There were no outstanding audit reports under World Bank-

financed projects implemented by the SFD at the time of EEIP’s preparation.

15

D. Procurement

53. Procurement will be the responsibility of the Sponsoring Agencies, which will be the

ministries, governorates, or NGOs; and the Intermediary Agencies, which will be the technical

directorates of the governorates and NGOs/CDAs. For labor intensive sub-projects, procurement

is a co-responsibility of the Sponsoring Agencies (SA), which are ministries, governorates, or

NGOs, and their technical directorates (Intermediary Agencies); and the SFD. The SFD will use

the same procedures and modalities in procurement, awarding and contracting as used in the

ELIIP, the only difference being that the SFD will co-sign the works contracts (local contractors)

together with the sponsoring agencies in the case of the sub-component on small-scale

infrastructure works.

54. An updated assessment of the methodology and the applied procurement procedures of SFD

to implement and monitor procurement actions for the project were carried out by the World

Bank during the preparation of the ELIIP in 2011and remain relevant to EEIP. The assessment

reviewed the organizational structure, the applied procedures and the matrix of responsibility for

implementing the Project. The key issues and risks concerning procurement for implementation

of the Project have been identified and included in Annex 3. The main mitigation measures are

maintaining qualified procurement staff, extending the contract of the procurement adviser, and

updating of the procurement manual to reflect the new procurement arrangement as explained

above to avoid any confusion with the ongoing project ELIIP.

55. The majority of the funds would be used for procurement activities under the Consultant

Qualification Selection (CQS) for consulting services, with a threshold of US$500,000 for the

selection of NGOs. The Procurement Department of the SFD and its officers in the regional

offices will ensure that procurement is carried out according to the updated Procurement Manual

regulations and procedures agreed upon with the World Bank. For that purpose, the SFD will

continue conducting ex-post reviews, assess the capacity of the intermediary agencies, and

conduct capacity building activities using as a basis the updated SFD Procurement Manual for

the Labor Intensive Sub-projects.

E. Social (including Safeguards)

56. From a social perspective, the Project’s impact is likely to be positive. With the emphasis on

rural areas and the targeting of districts in the lowest 35 percent of the poverty map, the poorest

and most vulnerable groups are likely to see an increase in employment, social and economic

opportunities. The youth are likely to be the primary beneficiaries of employment opportunities,

as they have higher unemployment rates. Females also will be targeted through supporting

community services sub-projects. The impact on women will be positive, especially from the

social services sub-projects, where women would be more likely to be among beneficiaries of the

services, as well as more likely to be employed to deliver the services. The gender differentiated

impacts will be monitored by the monitoring and evaluation framework and will be a special

focus of the social accountability measures to allow for adjustment during implementation to

improve the impact on women.

57. Social Accountability. This will be taken into consideration through different mechanisms as

follows: (i) a grievance and transparency mechanism that allow citizens to provide feedback to

16

the SFD about project implementation and to allow potential beneficiaries who were not

included in the program to seek redress; (ii) public information on the availability of employment

opportunities created by the project at relevant levels of implementation; (iii) client satisfaction

surveys especially for community social services sub-projects; and (iv) independent verification

of results of project implementation using NGOs.

F. Environment (including Safeguards)

58. The proposed environmental category is “B.” OP 4.01 is triggered. The EEIP provides

substantial resources that will directly complement the ongoing ELIIP and which will, in the

interest of sustaining an efficient and rapid response, adopt the approach and proven

implementation mechanisms developed under ELIIP, including environmental and social

safeguards.

59. The EEIP project will use the same Environmental and Social Screening and Assessment

Framework (ESSAF), as well as sectoral Environmental Management Plans (EMPs) that have

been developed and cleared by the World Bank to ensure environmental due diligence for similar

sub-projects funded under the ELIIP.

60. The ESSAF addresses, in a sound environmental manner and in line with the World Bank’s

safeguard policies, any likely negative environmental impacts potentially resulting from the sub-

project activities. It includes a screening tool to ensure that the sub-projects will not entail the

triggering of any World Bank safeguards policies except for OP 4.01 Environmental Assessment.

Also, the project, through the utilization of the screening tool included in the ESSAF, will

exclude any category "A" sub-projects from being funded through this project. Category "B"

projects will be subject to the national laws and regulations with regard to the preparation of an

Environmental and Social Impact Assessment (ESIA)/EMP to mitigate any negative

environmental impacts. The World Bank team, however, through supervision as well as regular

monitoring and follow-up activities, will conduct post-reviews for a selected sample of the

Environmental Assessment documents of the sub-projects. The ESSAF also includes examples

of the typical environmental impacts and the relevant mitigation measures of some of the sub-

projects that could be potentially funded by the project.

17

Annex 1: Results Framework and Monitoring

ARAB REPUBLIC OF EGYPT

Emergency Employment Investment Project

.

Project Development Objectives

The proposed Project Development Objectives are to i) to create short-term employment opportunities for the unemployed, unskilled and semi-

skilled workers in selected locations in Egypt; ii) to contribute to the creation and/ or maintenance of community infrastructure and services; iii) to

improve access to basic infrastructure and community services among target population; and iv) to improve the employability of the young men

and women through short-term training or other support services to facilitate transitions to wage and self-employment.

These results are at Project Level

Project Development Objective Indicators

Cumulative Target Values Data

Source/

Responsibility

for

Indicator Name Core Unit of

Measure Baseline

YR1

(2014)

YR2

(2015)

YR3

(2016)

YR4

(2017) End Target Frequency

Methodology Data

Collection

Direct project

beneficiaries of

workfare6

(core indicator:

Beneficiaries of

Social Safety Nets

programs)

of which are female

(%)

Number

Percentage

0.00

0.00

12,000

25%

24,000

30%

34,000

35%

40,000

40%

40,000

40%

Every six

months SFD MIS SFD

6 Workfare is defined as the labor intensive infrastructure and community service sub-projects

18

of which are youth

(18-29 year old)

Percentage

40%

50% 60% 60% 60%

Person days of

work opportunities

created through

workfare program

proportion of

which for females

proportion of which

are youth (18-29

year old)

Number of

person

days

Percentage

Percentage

0.00

0.00

0.00

2,500,000

25%

40%

7,500,000

30%

50%

12,500,000

35%

60%

13,580,000

40%

60%

13,580,000

40%

60%

Every six

months SFD MIS SFD

Job placement rate

(wage or self-

employment) of

those enrolled in

the employability

program

of which female

of which youth (18-

29 year old)

Percentage

Percentage

Percentage

0.00

0.00

0.00

0.00

0.00%

0.00

0.00

25%

50%

0.00

35%

60%

0.00

35%

60%

40%

35%

60%

One time

at the end

of

implemen

tation

Impact

evaluation

Consulting

firm

19

Intermediate Results Indicators

Cumulative Target Values

Frequency Data Source/

Responsibility

for

Indicator Name Core Unit of

Measure Baseline YR1 YR2 YR3 YR4

End

Target

Methodology Data

Collection

Component 1

Labor intensity of

subprojects: wage

share of total sub-

project costs

Percentage 0.00 40% 40% 40% 40% 40% Every six

months SFD MIS SFD

Small-scale

infrastructure sub-

projects

implemented

Number 0.00 0 2 4 6 6 Every six

months SFD MIS SFD

Direct sub-project

beneficiaries

satisfied

Percentage 0.00 65%

One time

during the

project

Process

evaluation

Evaluation

consultant

Beneficiaries who

receive their

wages on time7

Percentage 0.00 80%

One time

during the

project

Process

evaluation

Evaluation

consultant

River Nile banks

protected Kilometers 0.00 0 2 4 5 5 km

Every six

months SFD MIS SFD

Number of

classrooms

rehabilitated

Number 0.00

TBD once

the full

pipeline is

defined

Every six

months SFD MIS SFD

Rural roads paved Kilometers 0.00 TBC Every six

months SFD MIS SFD

7 As specified in the Operations Manual.

20

Component 2

Labor intensity of

subprojects

Wage share

of total sub-

project costs

(percentage)

0.00 60% 60% 70% 70% 70% Every six

months SFD MIS SFD

Community

services sub-

projects

completed

Number 0.00 0 100 300 500 500 Every six

months SFD MIS SFD

Direct sub-project

beneficiaries

satisfied

Percentage 0.00 65%

One time

during the

project

Process

evaluation SFD

Beneficiaries who

receive their

wages on time8

Percentage 0.00 80%

Every six

months

Beneficiary

survey

Evaluation

consultant

Villages that

received

cleanliness and

environmental

awareness

campaigns

Number 0.00 0.00 40 80 120 120 Every six

months SFD MIS SFD

Families that

received Maternal

and Child

Healthcare

visits/support

Number 0.00 0.00 200,000 400,000 600,000 600,000 Every six

months NGOs reports SFD

People

participating in

literacy classes

Number

0.00 TBC

Every six

months NGOs reports SFD

8 As specified in the Operations Manual.

21

Component 3

Individuals who

participated

(enrolled) in the

workers’

employability

programs ( core

indicators:

Beneficiaries of

Labor market

programs)

Of which are

female

Of which are

youth (18-29 year

old)

Number

Percentage

Percentage

0.00 300

25%

50%

1,000

25%

50%

2,000

30%

60%

3,125

35%

60%

3,125

35%

60%

Every six

months SFD MIS SFD

22

Annex 2: Detailed Project Description

ARAB REPUBLIC OF EGYPT

Emergency Employment Investment Project

Component 1: Employment-intensive Small-scale Infrastructure Subprojects (EUR 0.980

million or US$1.35 million equivalent)

1. This component will finance labor-intensive small infrastructure employment creation

programs. Specifically, the project will support labor-intensive small scale local public works

sub-projects which could include, but are not limited to Nile River bank protection, pavement of

rural roads, and school rehabilitation. These sub-projects could be demand-driven, requested by

the local government at the governorate level, or supply driven, requested by a central ministry

based on needs. Implementation of the sub-projects will be contracted out to private contractors.

Infrastructure operations and maintenance procedures will be defined and agreed upon with

beneficiaries and other stakeholders during the sub-project design phase (e.g. between SFD,

Ministries and Governorate).

2. Selection of labor-intensive sub-projects proposals for funding under the project will be

based on assessment criteria which include: labor intensity, activities that are less attractive to

those who have other options of access the labor market, wage rate that does not compete with

the prevailing rate in the labor market and the concentration of beneficiaries from the sub-project

location.

Component 2: Intensive Community Service Subprojects and Youth Employment

Activities (EUR 56.863 million or US$78.47 million equivalent)

3. This component will support labor-intensive community service sub-projects through the

provision of grants to local communities (NGOs and CBOs) for services like, but not limited to,

environmental awareness and cleaning campaigns in villages and local areas, early childhood

education, mother and child health support - including facilitating access to facilities, awareness,

home visits programs, illiteracy eradication activities, and youth engagement in community

initiatives in rural and urban areas (e.g. community mobilization and citizen engagement

activities). A high share of women beneficiaries can be expected, given that social services tend

to particularly attract females. Priority will be given to sub-projects with higher levels of labor

share.

4. Targeting for the workfare subprojects to be supported under Components 1 and 2 will

follow the same criteria and procedures as in the on-going World Bank-financed ELIIP.

Targeting will combine geographic targeting and self-targeting, building on the standard

mechanisms and lessons learned from the early implementation of ELIIP. Overall, eligible

districts will be determined on the basis of geographic targeting as guided by the Egypt Poverty

Map, which was updated using the latest data of the HIECS of 2010-2011, and the SFD Poverty

Targeting Toolkit. Pro-poor self-targeting is ensured by pre-identified eligibility criteria,

selecting subprojects which generate jobs that are not attractive to the non-poor, and setting wage

23

rate slightly below the prevailing market rate to discourage those who have other job options. It

is estimated that young people (18 to 29 years of age) will account for at least 60 percent of the

direct beneficiaries, given the high share of youth among the unemployed. In addition, some sub-

projects will be explicitly targeted to youth in rural and urban settings.

Component 3: Improving Workers Employability (EUR 5.882 million or US$8.12 million

equivalent)

5. This component will finance the piloting of two types of youth employment sub-projects

aimed at facilitating young people’s transition into wage- and self-employment. The pilot

programs will be demand-driven by NGOs based on a core set of interventions that are adapted

to the specific needs of youth and employers in the local context.

6. Beneficiary targeting: Subprojects to support beneficiaries in their transition to wage-

employment are more likely to be relevant in urban areas, while it is expected that interventions

to promote self-employment will primarily take place in rural areas. Beneficiaries will be young

men and women between the ages of 18-29 in the project’s target provinces who are out of

school and out of (full time) work. Program participants should not have participated in a formal

economic (full-time) activity for a period of more than six consecutive months since graduating

(or dropping out) from high-school, university, or another education institution. Disadvantaged

youth, including young women, will be specifically targeted. Implementing NGOs will be

required to openly advertise their activities in the local community according to the specific

eligibility criteria defined for the sub-projects (incl. age, gender, education and employment

status, etc.).

Component 3 will include two broad types of programs:

7. Programs to facilitate transitions into wage-employment. Pilot programs to facilitate

transitions into wage-employment can combine all or some of the following core interventions:

a) Training: The pilot programs can support different types of training conditional on the

existence of demand for the skills that will be provided. Implementation agencies are

expected to have agreements with particular employers or employer associations in terms

of available vacancies, skills to be acquired, curricula, and delivery mechanisms.

Training can include (i) technical training for job-specific skills in different occupations

and trades covering manual labor as well as administrative and office jobs; (ii) socio-

emotional and life skills; (iii) basic literacy and numeracy training; and (iv) on-the-job

training (internships or apprenticeships).

b) Intermediation and job-search assistance: Services under this category can include

(i) prospection, screening, job searching and matching of job-seekers and vacancies; and

(ii) job counselling and job-search assistance.

c) Wage and training subsidies: Where deemed necessary, implementing agencies can

make use of wage subsidies to encourage employers to hire youth and/or provide training

subsidies/stipends to encourage youth to take part in on-the-job training.

d) Social support services: As needed, implementing agencies can complement the above

activities with other support services appropriate for the respective target group, such as

child care, transportation allowances, referral services, psychosocial support, etc.

24

8. Integrated entrepreneurship programs. Pilot programs to facilitate transitions into self-

employment can combine all or some of the following core interventions:

a) Identifying business opportunities: NGOs should carry out local/regional market

assessments or feasibility studies to identify the key sectors offering promising livelihood

opportunities (as well as saturated markets), constraints of existing businesses and trades,

and possibilities for creating new and upgrading existing micro-enterprises.

b) Entrepreneurship training: In addition to the types of training that can be provided to

foster wage employment (see above), entrepreneurship training can also include skills

development in the area of business management and basic financial literacy, such as

participatory market research, determining financial risks and goals, business planning,

basic budgeting, bookkeeping, and sales and marketing. The business training can also be

used to develop some form of mini business plan that can subsequently be used to access

funding sources.

c) Financial services: Implementing agencies under this sub-component would be expected

to link beneficiaries to financial service providers or directly provide start-up financing as

needed. This might include: (i) facilitating beneficiaries’ access to individual or group

savings (formal or informal); (ii) providing start-up financing in the form of in-kind

grants; or (iii) facilitating access to credit and insurance by connecting beneficiaries with

financial institutions (e.g. Microfinance institutions).

d) Advisory services: In order to help youth sustain and grow their business, implementing

agencies are encouraged to offer business support services during the start-up and post-

creation stage. Advisory services could include: (i) facilitating group mobilization to

jointly exploit business opportunities; (ii) coaching and mentoring; (iii) administrative

assistance with regard to licensing and registration requirements; (iv) assistance with

improving production and service techniques; and (v) incubation and cluster support (i.e.

access to physical space).

e) Access to markets and value chains: In order to overcome the business limitations

resulting from a limited local market, implementing agencies are encouraged to help

beneficiaries access regional, national, and international markets. This can include

addressing issues of transportation and distribution, identifying buyers and

intermediaries, and creating brands and labels to support the marketing process.

Similarly, implementing agencies are encouraged to focus on businesses that have the

potential for integration into value chains.

Component 4: Project Implementation Support and Capacity Building (EUR 3.43 million

or US$4.73 million equivalent)

9. The implementation support program for the project includes: (i) training and consultancies

to support project management, monitoring and evaluation, financial management and

procurement; (ii) financing of public information activities, EU (donor) visibility,

communication and social mobilization strategy development and implementation; (iii) technical

verification for project outputs; and (iv) capacity building for SFD and governorate staff as

needed, as well as for the implementing NGOs.

25

10. Public Information, Communication, and Social Accountability. The component will

further support the design and implementation of the existing (under ELLIP) communication and

social mobilization strategy and detailed action plan. The objectives of the communication

strategy are: (i) promote the benefits of labor-intensive projects; (ii) raise public awareness about

the availability of the potential employment opportunities that would be created by the Project;

(iii) address areas of concern raised as the project is implemented; and (iv) create channels for

feedback from the beneficiaries and civil society that would improve implementation. The

communication strategy will propose key messages to be disseminated through

communication/media channels. The component will also finance the contingencies for the

project, as specified by the Trust Fund arrangement. Additionally, funding will be allocated for

EU visibility and branding activities for the project’s activities, as specified in the financing

agreement. In addition, the component will support the design and implementation of a

grievance and transparency mechanism that would allow citizens to provide feedback to the SFD

about project implementation and allow potential beneficiaries who have not been included in

the program to seek redress.

11. Technical Verification. Periodic technical verification will be carried out on a semi-annual

basis during the life of the Project, using an Independent Verification Expert (IVE) and NGOs.

The IVE will verify: (i) the intermediate sectoral outcomes; and (ii) compliance with the

Operations Manual.

12. Project Monitoring & Evaluation. Monitoring will be carried out by the SFD’s internal

monitoring system using the SFD management information system (MIS). The Project will

finance support to conduct a) targeting, process and beneficiary satisfaction evaluation; and

b) impact evaluation and cost effectiveness of the pilot youth employability programs

(Component 3), to assess the effectiveness of different approaches in securing employment and

increasing incomes of the beneficiaries. These evaluations are expected to assist the Government

of Egypt in improving implementation and assessing the potential for scaling up the workfare

activities as an essential part of Egypt’s social safety net program. Evaluations will be carried

out through independent consulting firms.

13. Capacity Building – for SFD and Governorate staff, as well as for the implementing NGOs -

- will be procured as needed. SFD staff will be exposed to experiences of other countries in the

design, delivery and scalability of similar programs. National and international training will be

provided as deemed to be relevant to the implementation of the project.

26

Annex 3: Implementation Arrangements

ARAB REPUBLIC OF EGYPT

Emergency Employment Investment Project

PROJECT INSTITUTIONAL ARRANGEMENTS

1. Project Implementing Agency. The implementation arrangements for this project will be

similar to those of the ELIIP, with the SFD as the main implementing agency. The SFD will be

responsible for the overall program, using its own fiduciary management systems that are in

compliance with World Bank regulations and procedures. The SFD is a legally autonomous,

permanent and well established development organization with a long track record of providing

support to needy and underserved communities. The SFD has been implementing the public

works program for the last 20 years to provide immediate short-term employment opportunities.

2. The SFD has significant experience in interventions that provide services and employment to

the poor, with an increasing focus on community participation, cooperation with NGOs, and

decentralization. Since 1992, about EGP 1.8 billion worth of projects have been implemented by

SFD in infrastructure development and EGP 0.9 billion worth of projects in community services.

Over the years, the most common sub-projects implemented were water supply and sanitation

projects, pavement of roads, cleaning of canals, public buildings, and riverbank protection.

3. Project Oversight. The Board of Directors of the SFD, which is chaired by the Prime

Minister and includes the Ministers of Finance, Planning and International Cooperation, Social

Solidarity, Trade, Industry and Investment, Local Development and Administrative

Development, Social Solidarity, Deputy Governor of the Central Bank of Egypt, in addition to 4

members representing the private sector and civil society, is responsible for project oversight.

SFD’s Managing Director will be responsible for general project coordination and

implementation.

4. Project Management. The SFD will rely on its Human and Community Development

Central Sector (HCD) and the capacities of the Financial Management Department, the Internal

Audit Department, the Environmental Safeguards Department, and the Planning, Monitoring,

and Evaluation Department in implementing this project. There will be no separate project

implementation unit (PIU) established within the SFD Headquarters. The SFD will work in close

partnership with the governorates, sectoral ministries at the governorate level, local authorities,

NGOs, and CDAs. The SFD will be responsible for implementing and coordinating the activities

of the project with the support of its 27 regional offices which will monitor and report on project

progress.

5. Implementation procedures. As in the ELIIP, the SFD will be responsible for financial

management and reporting, using systems and procedures acceptable to the World Bank.

Procurement will be the responsibility of the Sponsoring Agencies, which will be the ministries,

governorates, or NGOs; and the Intermediary Agencies, which will be the technical directorates

of the governorates and CDAs. The SFD will use the same procedures and modalities in

27

procurement, awarding, and contracting as used in the ELIIP, the only difference being that the

SFD will co-sign the works contracts (local contractors) together with the sponsoring agencies in

the case of the sub-component on small-scale infrastructure works.

IMPLEMENTATION ARRANGEMENTS

FOR COMPONENTS 1 AND 2:

6. SFD’s Roles and Responsibilities. Key SFD duties will include: (a) preparing the sub-

projects pipeline in accordance to the guidelines and eligibility criteria defined in the Operations

Manual; (b) assessing the degree of labor intensity of the proposed sub-project, (c) assessing the

degree of appropriateness of the proposed sub-projects to the local area need and community

engagement in identifying and executing sub-projects and the quality of the skills upgrading

activities proposed; (d) supervising the activities of the sponsoring agencies and the intermediary

agencies; (e) overseeing the procurement arrangements to ensure that implementing partners are

adhering to the agreed procedures; and in the case of small-scale sub-projects SFD has a co-

responsibility of the procurement process and SFD co-signs with the Sponsoring Agencies (SA)

the contracts; (f) ensuring that sponsoring agencies are actually carrying out the capacity

building activities for the implementing partners (including training on sub-project

implementation, contracting, operations and maintenance, and financial management);

(g) monitoring performance through the MIS and reporting quarterly on progress; and

(h) developing an impact evaluation process to provide information on project outcomes.

Main sub-project Partners

7. Line Ministries/Governorates and their technical directorates. Line Ministries are the

sectoral ministries at the national level that identify the types of technical subsectors to be funded

under this operation. Below the national level, the 27 governorates are the main focal points of

government development efforts. Associated with line ministries/governorates are technical

directorates (mudiriat) which represent line ministries within a particular governorate. Technical

directorates are responsible for the technical aspects of their sectors throughout the governorate.

Governorates and their technical directorates assume the technical responsibility for operation

and maintenance of most infrastructure investments.

8. NGOs/ Community Development Associations (CDAs). NGOs are registered large

experienced community development associations with a track record in implementing

community driven development projects. NGOs support the formation, capacity development,

and expansion of grass-roots CDAs at the village level. CDAs are groups of citizens from the

community with a common interest, who organize into legally constituted civil associations.

Both NGOs/CDAs will identify, prepare, implement, supervise, operate and maintain their sub-

projects, assisted both by technical specialists whom they contract directly and by technical

assistance and training made available through the Project.

28

Priority setting for allocation of funds

9. The Egypt poverty map information will be used to prioritize allocation of funds for sub-

projects geographical areas.

Sub-project implementation

10. Community Infrastructure Sub-projects:

Identification of sub-projects

The sub-projects pipeline is identified by SFD regional offices in collaboration with

sectoral line ministries, technical directorates at the governorate level, local authorities,

and in consultation with the local community.

Approvals by SFD

Once a group of sub-projects under a single framework agreement has been identified, it

is sent to the standing SFD appraisal committee at headquarters for appraisal. Upon

approval, the funds are allocated.

Signing of framework agreements

A framework agreement is signed between SFD and the governorate or line ministries

(SA). Framework agreements define the scope of the sub-project, preliminary sub-

project list, and reporting requirements, in addition to the roles and responsibilities of

the technical directorates as Implementing Agencies (IA). The IA will represent line

ministries within a particular governorate and will assume the technical responsibility

for operations and maintenance of infrastructure investments.

Setting up a Project Implementation Unit (PIU) within the SA

Based on an assessment of the strengths of the SA, a PIU will be set up within the SA.

Personnel will include a full time project manager, an accountant, and a procurement

specialist.

Signing of sub-grant agreements between SA and IA (also known as Intermediary

Grant Agreements)

A sub-grant agreement is signed between the governorate/line ministries (SA) and their

technical directorates at the governorate level (mudiriat) (IA). The sub-grant agreement

defines the roles and responsibilities of the technical directorates, contracting conditions,

and procurement procedures.

Setting up required bank accounts

A bank account for the sub-project will be set up in the name of the sponsoring agency,

with signatory delegated to the PIU and other details declared. Similarly, every

intermediary agency (technical directorate) which is expected to execute sub-projects

will also set up bank accounts.

29

Preparing detailed designs and tender documents by IA

The IA is responsible for preparing the detailed designs, bills of quantities, tender

documents, and technical daily supervision.

Physical execution of sub-projects

Sub-projects will be implemented through contracting local private civil works

contractors in accordance with SFD’s procurement manual and in compliance with

SFD’s financial management manual.

Reporting on sub-project progress

Implementation progress of sub-projects is reported by the SA as per reporting

requirements defined in SFD’s Operations Manual.

11. Community Services Sub-projects:

Selection of NGOs/CDAs

NGOs/CDAs will be selected based on the qualifications of the organization, past

experience, and implementation and fund management capacity. A long list of

NGOs/CDAs will be identified per sector for each governorate. The SFD has already a

long list of qualified NGOs/CDA, which will be updated during project implementation.

Identification of sub-projects

Qualified NGOs/CDAs per sector per geographic area will develop the sub-projects

pipeline in partnership with SFD regional offices and in collaboration and consultation

with the local authorities.

Approvals by SFD

Grant agreements for sub-projects are identified and sent to the standing SFD appraisal

committee at headquarters for appraisal. Upon approval, the funds are allocated to the

NGO/CDA.

Signing of grant agreements for sub-project implementation (also known as

Sponsoring Agencies Grant Agreements)

An agreement is signed between SFD and the implementing NGO/CDA that will define

the scope of the sub-project, the roles and responsibilities of NGO/CDA where

applicable, reporting requirements, contracting conditions, and procurement procedures.

Setting up a Project Implementation Unit (PIU) within the NGO/CDA

Based on an assessment of the strengths of the NGO/CDA, a PIU will be set up within

the SA. Personnel needed for the PIU will include a full time project manager, an

accountant, and a procurement specialist.

Setting up required bank accounts for the grant agreement

A bank account for the sub-project will be set up in the name of the NGO/CDA, with

signatory delegated to the PIU and other details declared.

30

Physical execution of sub-projects

Sub-projects will be implemented by the NGO/CDA through contracting suppliers and

consultants in accordance with SFD’s procurement manual and in compliance with

SFD’s financial management manual.

Reporting on sub-project progress

Implementation progress of the sub-projects is reported by the NGO/CDA as per

reporting requirements defined in SFD’s Operations Manual.

FOR COMPONENT 3:

12. Activities to facilitate the transition of young people to wage- and self-employment will be

managed by SFD’s Human and Community Development (HCD) Central Sector and

implemented by competitively selected NGOs.

13. Selection process: Interested NGOs can respond to an expression of interest based on which

SFD headquarters will carry out a first general capacity assessment of the respective

organizations. NGOs meeting the minimum requirements will be shortlisted and receive a

Request for proposal (RFP) that will specify in detail the required expertise of the NGO. Each

candidate will then submit a combined technical and financial proposal. These will be analyzed

and ranked according to a set of pre-identified criteria by a technical evaluation committee set up

by the SFD. Criteria will include i) the NGO’s ability to serve a minimum number of

beneficiaries; ii) track record of working with youth, including disadvantaged youth and young

women; iii) demonstrated experience in the type of youth employment programming proposed;

iv) technical quality of the proposal, including strong linkages with employers for wage-

31

employment projects and strong capacity for local market assessments for self-employment

projects; v) potential for sustainability and scaling-up; and vi) cost-effectiveness of the

intervention.

14. Implementation modalities: Applicant NGOs can choose to implement activities under

three different implementation structures.

a. Direct implementation: To the extent that NGOs meet the minimum eligibility and

quality criteria, they can apply to implement project activities independently.

b. Mother NGO: Mother NGOs would collaborate with local NGOs and/or CDAs to

implement specific services as needed. The Mother NGO would provide capacity

building and quality control to the local organizations as needed. In the eyes of the

SFD, the Mother NGO is the only legally responsible organization for the fulfillment

of the SFD grant.

c. Consortium: NGOs may also choose to form a consortium and apply for separate

grants related to the same project. In this scenario, several NGOs would agree upon a

joint project proposal, and the distribution of responsibilities, including which NGO

will be the lead NGO. Each NGO would then send a separate proposal to the SFD,

indicating that their proposal is part of a joint initiative. All proposals related to the

same initiative would then be evaluated jointly.

15. Implementing partners: As needed, the implementing NGOs are expected to enter into

partnership agreements with other agencies or experts to deliver specific parts of the services.

For example, this could include partnering with specialized training centers to deliver technical

training, with other NGOs or specialized consultants to deliver life skills training, or with

community-based organizations to enhance outreach to beneficiaries. Applicant NGOs will

specify their planned partnerships as part of their proposals. In the case of projects targeting

wage-employment, potential NGO providers will be required to partner with private sector firms

and secure their commitment to offer an internship and/or job vacancies to a certain number of

trainees graduating from the NGO’s program.

16. Performance-based contracts: Implementing NGOs will be reimbursed for the cost of

services on the basis of outputs and results. Performance-based contracts will reward

implementing NGOs for achieving the desired outcomes of the program to place a maximum

number of beneficiaries in available jobs through wage- and self-employment. The contract

mechanisms will therefore include a withheld payment that will be paid based on the

achievement of placement targets. Placements of beneficiaries into jobs will be subject to

independent verification by SFD.

MONITORING AND EVALUATION

17. Monitoring. The SFD will monitor the progress of implementation using its management

information system (MIS) which has been adapted to ensure that it will be able to respond to the

reporting requirements of the Bank and the Results Framework of the Project.

32

18. Reporting. The SFD will submit to the Bank semi-annual progress reports that provide

updates on the status of the project outcome, intermediate outcome, and output indicators. In

addition, the SFD will submit to the Bank a Mid Term Review Report and a Project Completion

Report.

19. Technical verification and quality assurance. Periodic technical verification will be carried

out on a semi-annual basis during the life of the Project, using an Independent Verification

Expert (IVE) and NGOs. The IVE will verify: (i) the intermediate sectoral outcomes; and (ii) the

output indicators. In the case of the youth employability component, the IVE will verify the

placement rates reported by the implementing NGOs. Quality assurance firms will assess: (i) the

quality of the works; (ii) whether sub-projects are operated and maintained in accordance with

SFD’s maintenance manuals; (iii) compliance with the Operations Manual; (iv) compliance with

environmental and social safeguards for community infrastructure sub-projects; and (v) client

satisfaction rates for workfare sub-projects

20. Evaluation. The Project will finance support to conduct mid-term, end-of-project, targeting

and process evaluations that will assist the Government of Egypt in assessing the potential for

scaling up the workfare activities as an essential part of Egypt’s social safety net program. An

impact evaluation will be conducted of the pilot youth employment programs (Component 3), to

assess the effectiveness of different approaches in securing employment and increasing incomes

of the beneficiaries. Evaluations will be carried out through independent consulting firms.

21. The project will be managed in accordance with SFD’s Operations Manual which at all times

will need to be acceptable to the World Bank.

FINANCIAL MANAGEMENT AND DISBURSEMENT

A. Executive Summary and Conclusions

22. An assessment of the Financial Management arrangements (FM) for the EEIP was

undertaken to assess the capacity of the implementing entity of the project and assist in

determining the required FM arrangements for the implementation of the project. A detailed FM

capacity assessment of SFD was conducted and its outcome is found to be satisfactory to the

Bank.

23. The project arrangements were discussed at length with evaluation of FM options to be

applied during implementation and their impact on the various stakeholders under the Project.

The envisaged project stakeholders were identified as: (i) SFD and its affiliated Regional

Offices (RO) (Tier 1); (ii) the SA which will be represented in the PIUs within the respective

Ministry, Governorate or NGO (Tier 2); and (iii) the IA responsible for the respective project at

the governorate level (Tier 3).

24. As it is the case with the different donor funded projects implemented by the SFD, the

current automated accounting system (i.e., Oracle) includes a separate coding system for each

project. Detailed disbursement, reporting and auditing arrangements were agreed with SFD as

detailed in the following sections in this annex.

33

B. FM Risk Assessment and Mitigating Measures

25. The diagnostic studies conducted by the Bank that covered financial management at the

country level (ROSC, CFAA, PEFA) identified some weaknesses in the reporting and auditing

environment in Egypt. The overall fiduciary risk associated with public financial management

was assessed to be significant. This was taken into consideration in assessing the project risks

and in designing the project FM arrangements.

Inherent Risks: Mitigating Measure (MM)

The diversified structure and the

multiple layers of implementation may

result in slow implementation and

difficult monitoring.

Substantial

- The SFD has prior experience with similar

Bank-financed projects.

- The OM clarifies the

relations/responsibilities of the different

implementation layers.

Moderate

Project level

Lack of coordination between the

different parties involved with the

project implementation (SFD, SAs,

Intermediary Agencies, etc.) can

negatively affect smooth project

implementation.

High

- As per the framework agreements with the

SAs the PIUs in the Ministries, Governorates or

NGOs will be responsible for sending monthly

Technical and Financial Reports to the SFD

ROs in order to be entitled to request future

tranches.

Substantial

General Risk Before MM High General Risk after MM Substantial

Control Risk

Internal Control

The existing internal controls at the

SFD should be updated to meet the

new Project’s needs (Project’s

disbursement procedures and reporting

requirements).

Substantial - SFD procedures have been amended to

capture the financial management arrangement

and disbursement requirements of the Project.

- The SFD Internal Audit Department (IA)

established a risk based audit strategy which was

reviewed, and found acceptable, by the Bank.

The audit strategy covers the IA involvement in

the evaluating the grant recipient and follow up

on activities through project implementation.

The SFD IA conducts capacity assessment of the

PIU/CDA before signing the framework

agreement.

Moderate

Funds Flow

Lengthy channels of funds from the

Bank through SFD and SAs before

arriving to ultimate beneficiaries.

SFD’s requests for replenishment for

unsettled advance payments can result

in ineligible expenditures and inflated

Bank exposure.

Substantial - The project design allows SFD to request

advances to the Designated Account up to 6

months of its estimated disbursement plan as

presented in the IFRs. Also the NGOs will be

able to request funds, in advance, based on cash

forecasts and expected commitments. Each

NGO will have a bank account to be used solely

for the project.

Moderate

34

- The SFD will continuously keep track of the

amounts actually disbursed, through the SFD

Finance Department, and not only the amounts

transferred to the NGO. The amounts actually

disbursed should represent the basis for

requesting replenishments.

Financial Reporting

The project reports need to reflect the

project finances including SAs. The

SFD financial management system

will need to be configured to become

able to compile the project financial

data and issue on quarterly basis the

project reports.

The consolidation of reporting may

not be timely.

Substantial

- As per the framework agreements with the

SAs the PIUs in the Ministries, Governorates or

NGO/CDAs will be responsible for sending

monthly Technical and Financial Reports to the

SFD ROs in order to be entitled to request future

tranches.

- The format and content of the project reports

has been agreed upon with the SFD.

- This system allows the generation of the

overall project financial reports on a timely

basis.

- The IT department at the SFD creates

separate accounting codes for each Project.

Moderate

Overall Control risk Substantial Moderate

Staffing:

26. The SFD Finance Sector structure is as per the following organizational chart. The SFD staff

capacity in the Finance and Internal Audit were found to be adequate to absorb the additional

workload of the Project. There are 27 employees in the Finance Sector and 40 employees in the

IA department, with adequate prior experience with Bank-financed projects and satisfactory FM

performance.

35

Accounting:

27. The SFD will record all project-related transactions using cash basis. Original supporting

documents will be kept at the SA level. The SFD Internal Audit and the project External Auditor

will be granted access to examine the original supporting documentation. Meanwhile, the SA

will send monthly reports to the SFD regional office. The Implementing Agency, in coordination

with the SA, is responsible for the issuance of bidding documents, the selection process,

supervision of implementation, the verification of technical acceptability of implemented

activities, and the issuance of payments to beneficiaries.

28. The SFD bookkeeping is automated through the accounting system, Oracle, which is

centralized in the SFD Head Office. The system was previously found to be acceptable by the

Bank and accordingly, it was agreed with the IT representative to establish a separate module on

the Oracle system for the sole purpose of recording the receipt of all project proceeds and

corresponding disbursements. In addition, the system is capable of generating quarterly IFRs

and annual Financial Statements as required under the Grant Agreement. In case of contracting

with PIUs working under a SA, the SFD system automation is applied to the entire recording and

reporting stream and the PIUs will be granted access to the SFD system to report on the project

activities. When contracting with NGOs, the SFD RO will be responsible for the recording and

reporting on the SFD system on behalf of the NGO. The format and content of the project reports

has been agreed with the SFD Finance and IT Departments.

29. Grants are first accounted for when granted to finance sub-projects and recorded in the

accounting system based on actual disbursement. Contracts will be kept at the SFD Headquarters

while original documentation supporting actual disbursements will be kept at the PIU/NGO level

which will also be required to scan supporting documents and send it to the ROs to request

transfer of funds. The contract with the PIU will state that the SFD IA department and the

independent external auditor will be granted access to examine the project original documents

supporting actual disbursements.

30. The SFD will continuously keep track of the amounts actually disbursed and not only the

amounts transferred to the SA. The amounts actually disbursed should represent the basis for

requesting replenishments.

Flow of Funds and Internal Controls:

31. To facilitate the flow of funds, a Designated Account (DA) will be opened at the Central

Bank to receive the grant funds that will be used for the sole purpose of executing the project

activities. The project design allows SFD to request advances to the DA up to 6 months of

estimated disbursement plan as presented in the Interim Financial Reports (IFRs) i.e., IFR based

disbursement.

32. Before signing the framework agreement with the respective SA, the IA department will

conduct a capacity assessment of the PIU/NGO. Upon the IA clearance, the framework

agreement will be signed accordingly.

33. The framework agreement signed with the SA (Governorate, Ministry, Mother NGO or

NGO) is given a unique code and entered in the SFD automated system against the financing

36

donor. For Component 1, the SFD will be directly contracting and paying subprojects

implemented under this component. For Component 2, NGO/CDA issues a disbursement request

to the SFD RO requesting the advance payment (and later subsequent tranches) to be transferred

to its bank account. The RO forwards the request to the responsible department (i.e., HCD). The

HCD fills out a disbursement form with all project information (i.e., code , name, responsible

department, sub-project start date, sub-project duration, sub-project developmental objective,

financing source, project value, total number of tranches according to the contract, previous

tranches and their respective amount, remaining amount, bank name, bank account number). The

form is signed by the responsible sub-project officer, and approved by the HCD Head of the

Department and HCD Sector Head. The form is then reviewed and signed by the Monitoring and

Evaluation Department.

34. The form is forwarded to the Finance Sector where it is reviewed, approved and authorized

for payment. The form is signed by the Head of Expenses and Transfers Department and the

Financial Follow Up of Convention Department and Finance Sector Director.

35. The Expenses and Transfers Department issues a letter to the bank to transfer the requested

and approved amount to the NGO/CDA from the DA to the respective bank account. The letter is

signed by the Head of Expenses and Transfers Department and the Manager in the Expenses and

Transfers Department.9 The same procedures apply for subsequent tranches. The following

documents are attached with the disbursement request from the NGO to the RO:

- The cumulative disbursements.

- Technical report on the project achievements.

- Plan for future disbursements and work.

36. The Financial Follow Up of Convention Department will keep track of all project

disbursements and will disburse from the grant as per the quarterly IFR which will include:

- DA balance

- Amounts disbursed to the end beneficiaries (Contactors/Suppliers)

- Upcoming six month disbursement forecast

The above is associated with a Withdrawal Application which will be signed by the project

authorized signatories.

37. The project disbursement plan will be updated periodically and will be used to reflect the

variances upon IFRs submission. It is necessary that variance analysis be prepared with each IFR

submission explaining variances that exceed 15 percent between actual and planned figures of

the reporting period.

38. The SFD has an internal audit department and adequate FM manual reflecting its operation

which was found to be satisfactory. The current Internal Audit Department includes around 40

auditors at the HQ and governorate levels. The Internal Audit Department –with its current

capacity- is responsible for conducting audit field work and related reporting for all SFD projects

all over Egypt.

9 On the SFD automated system, the related Journal Voucher is prepared by finance officer, reviewed by the finance

manager and approved by the Financial Control department Senior Manager and the Sector Director Finance and

Operation.

37

39. The SFD Internal Audit Department (IA) established a risk based audit strategy which was

reviewed, and found acceptable, by the Bank. The audit strategy covers the IA and the

independent external auditor involvement in evaluating the grant recipient and follow up on

activities being implemented. A capacity assessment of the PIU/NGO would be carried out

before signing the framework agreement. Upon the IA clearance, the framework agreement will

be signed accordingly. The IA strategy also includes the internal procedures of the SFD in the

process of appointing the external auditor for the Project, and refers to the fact that the external

auditor TOR will be reviewed and given a ‘no objection’ by the Bank. The IA audit strategy

stipulates that all projects are subject to at least two Internal Audit attestation visits, one at an

early stage of project implementation and another visit before transferring the final grant tranche.

Reporting and Auditing:

40. The SFD is subject to an external audit and to the Central Accountancy Office regular audits

as well as independent private audits. The SFD will ensure that an external auditor for the project

is appointed within three months after project effectiveness. The external auditor will conduct

quarterly reviews on the project IFRs before submission to the Bank.

41. The SFD will remit to the Bank not later than six months after the end of each year the audit

report of the Project. The external audit report shall encompass all Project activities and shall be

in accordance with International Standards on Auditing (ISA). In addition to the audit reports,

the auditor will prepare a "management letter" identifying any observations, comments and

deficiencies, in the system and controls, that the auditor considers pertinent and shall provide

recommendations for their improvements. The TOR for the auditor will be prepared and

submitted for the Bank's ‘no objection’.

42. The below table summarizes the financial reporting arrangements required under the project.

Report Due Date Responsibility Sent

to

Scope

Interim

financial

Reports

45 days from end

of quarter

External Auditor Bank Review

Annual

financial

statements

6 months from end

of the fiscal year

External Auditor Bank Audit

Supervision Plan:

43. At least two implementation support missions will be carried out annually. Follow up visits

will be conducted as deemed necessary. The review and audit reports of the interim and annual

financial statements respectively, in addition to management letter, will be reviewed on a regular

basis by the Bank FM Specialist and the results or any issues will be followed up during

implementation support missions. Also, during the Bank's missions, the Project's financial

management and disbursement arrangements will be reviewed to ensure compliance with the

Bank's requirements and to develop the financial management rating for the Implementation

Status Report (ISR).

38

PROCUREMENT

44. Procurement for the proposed Project will be carried out in accordance with the World

Bank’s “Guidelines: Procurement under IBRD Loans and IDA Credits” dated January 2011;

“Guidelines: Selection and Employment of Consultants by World Bank Recipients” dated

January 2011; the World Bank’s Anti-Corruption Guidelines (“Guidelines on Preventing and

Combating Corruption in Projects Financed by IBRD Loans and IDA Credits and Grants), and

the provisions stipulated in the Legal Agreement. The various items under different expenditure

categories are described in general below. For each contract to be financed by the Grant, the

different procurement methods or consultant selection methods, the need for pre-qualification,

estimated costs, prior review requirements, and time frame are agreed between the Recipient and

the Bank in the Procurement Plan. The Procurement Plan will be updated at least annually or as

required to reflect the actual project implementation needs and improvements in institutional

capacity.

45. Procurement of Works: Works procured under this Project will include: small value

contracts estimated to not exceed US$350,000. Large contracts will not arise at the SA/NGO level

due to the nature of the works involved and, therefore, International Competitive Bidding (ICB) is

not foreseen. Civil works contracts will be implemented by local contractors and supervised by

the SA, the beneficiary of SFD finance.

46. Civil works contracts will include canal weed reduction and protection of river bank,

rehabilitation of rural housing, upgrading of rural roads, and school rehabilitation. Civil works

with an estimated contract value below US$350,000 would be awarded through local shopping

(small works procedures) as explained and agreed upon in the updated Operations Manual. The

Operations Manual will also include standard evaluation forms related to the set types of

procurements.

47. Civil works with an estimated contract value more than US$350,000 will be procured at the

SFD central level through National Competitive Bidding (NCB) using the modified World Bank

standard bidding document in Arabic language which is currently being used by other World

Bank financed projects in the water sector in Egypt, with advertisement in two national

newspapers. NCB procedures shall comply with the requirements stipulated in the Financing

Agreement under the Provisions for NCB.

48. Procurement of Goods: Goods procured under this Project will include: small value contracts

of less than US$100,000. The procurement will be done following the SFD updated procurement

manual as agreed upon with the Bank; this manual Includes in its annexes simplified local

shopping procedures for contracts estimated less than US$100,000 or equivalent. The manual also

includes standard evaluation forms related to these types of procurements.

49. Procurement of non-consulting services: Procurement of non-consulting services under the

project may include printing services, translation services, transportation service, catering

services, hotel services, etc.

39

50. Selection of Consultants: All consulting service contracts under this project would be

procured at the SFD central level following the World Bank’s procurement procedures by using

the Bank’s Standard Request for Proposal. Consulting services contracts would mainly comprise

hiring of an Independent Verification Expert, Evaluation, Communication, Capacity

Development, and Audits. Consulting service contracts above US$500,000 will use Quality and

Cost based Selection QCBS and/or Quality Based selection QBS. Consulting service contracts

below US$500,000 for selection of firms or NGOs may be procured using selection based on

Consultants‟ Qualification CQS, Fixed Budget Selection FBS, and Least Cost Selection LCS.

51. Single Source Selection could be used in exceptional cases subject to approval by the Bank.

The SFD updated procurement manual will include annexes of standard simplified Request for

Proposals (RFP) and contract forms as well as standard evaluation forms. Short lists of

consultants for services estimated to cost less than US$500,000 equivalent per contract may be

composed entirely of national consultants in accordance with the provisions of paragraph 2.7 of

the Consultant Guidelines. All individual consulting assignments will be selected on the basis of

comparison of qualifications in accordance with Section V of the Guidelines for Selection of

Individual Consultants.

52. Capacity building activities to be financed by the Grant include workshops to train

beneficiaries on environmental and other aspects related to implementation of the LI subprojects.

The procurement will be done in the form of a budget covering the expenses of the workshops.

This will include trainees travel expenses, their accommodation if necessary, rental of space,

consumables and remuneration for private facilitators.

Assessment of the Agency’s Capacity to Implement Procurement

53. An updated assessment of the methodology and the applied procurement procedures of Egypt

SFD to implement and monitor procurement actions for the ongoing project were carried out by

the Bank during the preparation stage of ELIIP in 2011 and these remain to be valid under EEIP.

The assessment reviewed the organizational structure, the applied procedures and the matrix of

responsibility for implementing the Project. The key issues and risks concerning procurement for

implementation of the ongoing Project were identified and included:

Bidding Document (BD )inconsistent with World Bank Guidelines;

Inconsistent application of rules and procedures by the different implementing agencies;

Quality of selection process for NGOs yet to be improved.

Lack of standard BD, RFP, contract forms and evaluation forms;

Practice of pre/post award negotiations;

Unjustified re-bidding which may result in unnecessary delays in implementation;

Civil servants are paid out of the project proceeds.

A general practice across the country of negotiating prices with bidders or accepting

discount after bids opening.

54. The corrective measures which had been agreed were: (i) hiring of an experienced

procurement adviser for consulting services); (ii) updating of the procurement manual with

complete annexes to ensure clear definitions of rules and responsibilities and enable consistent

application of these rules (completed March 2012); (iii) reinforcement of the capacity of the

40

regional offices by the procurement adviser to monitor conform compliance to the application of

procurement procedures by the SAs and IAs ; and (v) carrying out of appropriate capacity

building for the procurement manual and annexes (completed February 2013). Since all

mitigation measures have been completed during the implementation of the ongoing project, the

overall project risk for procurement is Moderate.

55. Prior Review: Consulting services contracts above US$500,000, civil works above

US$350,000 and goods above US$100,000 would be subject to the Bank’s prior review or as

indicated in table 1 below. Rejection of all bids for rebidding purposes is subject to the Bank’s

prior review regardless of the value of the contract. All individual consultants’ contracts above

US$50,000 would be subject to the Bank’s prior review. All other contracts would be subject to

post review.

Table Summarizing Prior Review Thresholds:

56. Procurement Plan: The Recipient, at appraisal, developed a procurement plan for project

implementation which provides the basis for the procurement methods. This plan was agreed

upon between the Recipient and the Project Team before negotiation. The Procurement Plan will

be updated in agreement with the Project Team annually or as required to reflect the actual project

implementation needs and improvements in institutional capacity.

57. Frequency of Procurement Supervision: In addition to the prior review, supervision to be

carried out from the Bank office, the capacity assessment of the IA has recommended two

supervision missions to visit the field to carry out post-review of procurement actions.

Prior Review

Thresholds Proposed

(USD million) Procurement Method Thresholds Proposed (US$ million)

ICB NCB Shopping QCBS QBS CQS

Least

Cost SSS

Goods The first two NCB

contracts regardless

of their values all

ICB contracts

≥1.0 <1.0 <0.1

Works The first two NCB

contracts regardless

of their values and all

ICB contracts

≥10 >0.35 <0.35

Consulting

Services

0.5 Default TBD <0.5 TBD TBD

Rebidding All

41

Annex 4: Operational Risk Assessment Framework (ORAF)

ARAB REPUBLIC OF EGYPY

Emergency Employment Investment Project

Risks

1. Project Stakeholder Risks

1.1 Stakeholder Risk Rating Substantial

Risk Description:

a) SFD as an institution is

supported by the government

and the donor community,

and is known as an effective

employment creation and

poverty reduction instrument.

Job creation is the top

priority. Local government is

the focal point for

identification of sub-projects,

and there may be the

possibility of bias in targeting.

b) At the local level, there

may be bias in the

identification of sub-projects

to be funded.

c) Since the activities are

expected to be implemented

by NGOs, there is likely to be

fiduciary and reputational

risks to the Bank

Risk Management:

a) The project will follow agreed mechanisms for targeting, utilizing country poverty maps and combining geographic

targeting, self-targeting, and community targeting.

Resp: Client Status: Ongoi

ng Stage: Preparation and

implementation

Recurrent:

Due

Date: Frequency:

Continuous

Risk Management:

b) The sub-project types will be identified through a process of assessing all proposals against a set of selection criteria, e.g.

labor intensity, activities that prioritizes the unskilled and semi-skilled and the capacity of the sponsoring agency.

Resp: Client Status: Ongoi

ng Stage: Preparation and

implementation

Recurrent: Due

Date: Frequency: Continuous

Risk Management:

c) To mitigate these risks, NGOs will be competitively selected by the SFD based on certain selection criteria

including their experience and financial capacity. SFD will monitor NGO activities relying on its Internal Audit

department as well as tailored terms of reference when hiring the project external auditor. In addition, SFD’s

community participation approach, transparent information sharing and feedback mechanisms collectively help

in reducing this risk.

Resp: Client Status: Ongoi

ng Stage: Preparation and

implementation

Recurrent: Due

Date: Frequency: Continuous

42

2. Implementing Agency (IA) Risks (including Fiduciary Risks)

2.1 Capacity Rating Moderate

Risk Description:

a) Lack of sufficient capacity for

project management, given that SFD

has not been managing labor intensive

sub-projects, although they have

started now under the WB financed

ELIIP. There was initially

insufficient procurement and FM

capacity, including a challenging

public financial management

environment. Lack of implementing

capacity at the local levels. SFD did at

one time have an active public works

program, which the WB supported,

but the program closed in the 1990s

due to diminished demand. The

staffing, procedures and other

arrangements used during that period

are gradually coming back into place

over the past year through the

implementation of the WB funded

ELIIP. Capacity under the ongoing

ELIIP indicates that project

management and fiduciary capacity

are adequate.

b) Procurement risk is considered

‘Moderate’ because: (i) there are gaps

in procurement capacity, especially at

the local level; and (ii) all

procurement for goods will be carried

out using Shopping procedures and

NGOs will be selected using CQS.

c) Financial Management risk is

considered “Substantial” because:

Risk Management:

a) Support from the EEIP, in the form of TA to build project management capacity, including in the areas of project

management, procurement and financial management.

Resp: Both Status:

Ongoi

ng

Stage: Preparation and

implementation

Recurrent: Due

Date: Frequency:

Continuous

Risk Management:

b) Procurement: Mitigation measures include: (i) an experienced Procurement Advisor was hired under the ongoing

Bank-financed ELIIP-; (ii) the Procurement Manual with complete annexes was updated to ensure clear definitions

of roles and responsibilities, and consistent application of procedures; (iii) reinforce capacity of regional offices

through Procurement Advisor to monitor conformity with procedures used by SAs and IAs; and (iv) provide

capacity building on development of Procurement Manual and Annexes.

Resp: Both Status:

Ongoi

ng

Stage: Preparation and

implementation

Recurrent: Due

Date: Frequency:

Continuous

Risk Management:

c) Financial Management: Mitigation measures include: (i) the Operations Manual clarifies the roles/responsibilities

of the different implementation layers; (ii) Intermediary implementing entities are required to send technical and

financial reports to the SFD ROs in order to be entitled to request new payment tranches; (iii) the SFD Internal Audit

Department has established a risk based audit strategy which is acceptable to the Bank.

Resp: Client Status:

Ongoi

ng

Stage: Implementation Recurrent: Due

Date: Frequency:

Continuous

43

(i) the project involves decentralized

implementation arrangements with the

SAs and NGOs at the governorate

level managing significant funds; (ii)

there is relatively weaker capacity and

oversight at the decentralized level;

and (iii) the PFM diagnostics for

Egypt during the past years have

indicated that the PFM risk in Egypt

is Substantial, with no integrated PFM

reform agenda.

3.2 Governance Rating Substantial

Risk Description: Risk Management:

Project implementation will involve

multiple agencies at different levels,

and this could complicate the

implementation process.

Roles and responsibilities of the

different agencies and levels (central,

governorate, municipality) may not

be sufficiently clear.

Lags in decision-making.

Too few qualified staff at local level

to implement a large PWP.

TA support under the EEIP could be used to help build up the capacity at the local level. Also, the Project

Operations Manual will detail the roles and responsibilities of all the players, as well as social accountability

arrangements.

In the area of youth employment, 15-20 international and national NGOs have been pre-identified as potentially

being able to implement the planned programs. A two-stage evaluation process (EoI and RfP) will identify the most

qualified NGOs. Moreover, several arrangements are foreseen that would allow high-capacity NGOs to partner with

smaller NGOs/CBOs, e.g. mother-NGO or consortium structures. These arrangements are expected to ensure

sufficient capacity at the central level while facilitating knowledge transfer to lower capacity NGOs. The SFD with

the support of the World Bank experts will conduct a workshop for interested NGOs to provide clarity on the

program requirements, as well as governance structure, roles and responsibilities of various stakeholders.

Assessment of fiduciary risks (procurement and financial management) has been made during the project

preparation including procurement and financial management capacity assessments of the PMT and action plans for

mitigation were developed. The Bank will put in place adequate controls to ensure the project is appropriately

monitored through procurement and financial management reviews.

SFD has a long and positive history of implementing similar projects including the ongoing ELIIP project.

Resp: Both Status:

Ongoi

ng

Stage: Implementation Recurrent: Due Date: Frequency:

Continuous

44

3. Project Risks

3.1 Design Rating Substantial

Risk Description: Risk Management:

The project is complex in nature,

with weak capacity of the

implementing partners,

including CDAs and NGOs.

While envisaged PWP activities

are straight forward, the project

would provide support for the

adoption of several targeting

mechanisms. Inequitable or

skewed targeting of the poor for

participation in the public works

sub-projects. Egypt does not

have a scalable targeted social

protection system to adequately

protect the poor if a crisis

emerges. Enhanced targeting

measures are needed.

The project includes funding to build and strengthen capacity of the SFD and the implementing partners, including

fiduciary functions. For example, all CDAs and NGOs will be required to have a Project Implementation Unit (PIU)

which includes a full time project manager, an accountant and a procurement specialist.

The project includes funding to build capacity of the SFD to use available and tested targeting mechanisms, poverty maps

and other tools.

Resp: Both Status: Ongoi

ng Stage: Preparation and

implementation

Recurrent: Due

Date: Frequency: Continuous

3.2 Social and

Environmental Rating Low

Risk Description: Risk Management:

Social – Social risks are

minimal or non-existent. This

project would directly benefit

unskilled, impoverished and

largely rural population.

Environmental - there may be

some negative environmental

impacts resulting from

implementing some sub-projects

though potentially minor and not

significant. SFD has experience

An Environmental and Social Screening and Assessment Framework (ESSAF), as well as sectoral Environmental

Management Plans (EMPs) and Environmental Guidelines have been developed and cleared by the Bank to ensure

environmental due diligence for similar sub-projects funded under the Bank-financed ELIIP. It is intended to ensure that,

for all activities financed by the project, all efforts are made to avoid and minimize environmental and social impacts, and

any sub-projects that could trigger any policies that are not envisaged by the ESSAF will be excluded as ineligible.

Resp: Client Status: Ongoi

ng Stage: Preparation and

implementation

Recurrent: Due

Date: Frequency: Continuous

45

in implementing EMP as per

World Bank policies and

guidelines and has developed

them for the ongoing WB

financed ELIIP which were

revised as needed and will be

used for this project. It also has

environmental focal points and

qualified environmental

consultants.

3.3 Program and Donor Rating Moderate

Risk Description: Risk Management:

Donors may choose not to

provide funding tranches if

dissatisfied with the project.

The EU has committed to providing EUR 67.626 million to the project in full and eligibility of expenditures were

discussed in detail as part of the Administrative Agreement between the EU and the World Bank, signed on December 19,

2013. The project will entail significant interaction and oversight by the EU including direct interaction with the PIU/

Recipient.

Resp: Bank Status: Ongoi

ng Stage: Preparation and

implementation

Recurrent: Due

Date: Frequency: Continuous

3.4 Delivery Monitoring

and Sustainability Rating Moderate

Risk Description:

a) The M&E system currently in

place may not be adequate to

effectively measure project

results, including outputs and

outcomes. This risk is

considered Moderate as the SFD

has developed M&E systems to

monitor p 3evious WB-financed

projects.

b) There is a risk to

sustainability if the Government

will not provide sufficient

Risk Management:

a) The SFD MIS system has been upgraded (with EU support) and enables users to receive real time monitoring of the

entire sub-project cycle. The MIS was also modified to enable it to collect and report on project specific outputs and

outcomes in disaggregated manner. The proposed project will also include support to continue strengthening the SFD

M&E function for project monitoring, especially in the area of monitoring outcomes, project development objective

results and enhanced data collection.

Resp: Both Status: Ongoi

ng Stage: Preparation and

implementation

Recurrent: Due

Date: Frequency: Continuous

Risk Management:

b) As the project is addressing country shocks, it is not meant to be financially sustainable. However, capacity

development of the SFD as an institution that will be capable to implement this program in a scalable manner is an

essential element of program sustainability and resources are devoted under the project towards that end.

46

funding for operations and

maintenance (O&M) costs

related to the public works

activities after the project

closes, even though covering

these O&M costs is a

requirement as part of the initial

sub-project agreement with the

local government authorities.

Resp: Client Status: Ongoi

ng Stage: Preparation and

implementation

Recurrent: Due

Date: Frequency: Continuous

4. Overall Risk

Overall Implementation Risk: Substantial

Explanation: The Project will be implemented in a country where the political environment is still in transition. Mitigating measures to address these risks

include inter-alia: (i) a project design that focuses on poor areas where the risk of major disruptions to project activities is lower; and (ii) selection of the

SFD as implementing agency—the SFD has considerable prior experience with implementing Bank-financed projects, and is familiar with Bank policies

and procedures; and (iii) fiduciary safeguards are in place for the project to ensure effective oversight of the flow of funds and procurement procedures.

47