AGENCY FOR INTERNATIONAL DEVELOPMENT D- 6 7- 1 53 UNITED STATES OF AMERICA A.I.D. MISSION TO EL SALVADOR / C? 1.. .I .. ..- C/O AMERICAN EMBASSY -,?A SAN SALVADOR, EL SALVADOR, C.A. ACTION MEMORANDUM TO THE MISSION DIRECTOR FROM : Todd Sorenso cting SO2 Team Leader SUBJECT: Project ~ssiscance Completion Report - Legislative Assembly Strengthening Project No. 519-0360 DATE : January 23, 2001 In accordance with ADS 203 (Managing for Results: Monitoring and Evaluating Performance) and USAID/El Salvador policy (Mission Operation Manual, Chapter 770), attached is the Project Assistance Completion Report (PACR) for the Legislative Assembly Strengthening Project No. 519-0360. The goal of this Activity was to strengthen the democratic process in El Salvador. The purpose of the Project was to strengthen the ability of the National Legislative Assembly to serve as a national forum in which the concerns of the various sectors of society are articulated and linked to policy, program and budget formulation. The Activity consisted of three major components: (1) technical support services, (2) in£ rastructure, and (3) constituency services. The Activity terminated on June 30, 1998. The PACR summarizes the accomplishments of the Activity. It includes Lessons Learned, Conclusions and Recommendations. Recommendation: That you approve the attached Project Assistance Completion Report. APPROVED DISAPPROVED: : d DATE : PROJECT ASSISTANCE COMPLETION REPORT LEGISLATIVE ASSEMBLY STRENGTHENING PROJECT NO. 519-0360 I. SUMMARY OF THE PROJECT A. Brief Project Description This Project Agreement was signed between USAID and the Government of El Salvador (GOES) and the Legislative Assembly of El Salvador (Assembly) as the beneficiary institution on August 29, 1990 and ended on June 30, 1998. The program was designed to enhance the operational effectiveness of the Assembly through the provision of technical assistance, training, equipment, and observational trips. The Assembly received assistance in developing and institutionalizing technical support, strengthening the committee system and integrating certain pilot programs to help the institution play a greater role in shaping the national agenda. In building additional offices for all Deputies and a legislative library they were enabled to work more efficiently and meet with their constituents. In implementing a pilot public education program the Assembly was assisted in projecting a stronger and more positive institutional image to its national constituency and encourage increased contact and communication between the legislature and citizens. As a result, the Assembly of 1995 was far better off than the Assembly of 1989 in its functioning, including the quality of work developed. Despite this significant progress, the citizenry continued demanding more changes from the Legislative Assembly, especially to broaden public participation and the transparency of the legislative process, a key role of modern parliaments and legislatures. USAID funding for the subject Project started at $490,000 in economic support funds (ESF) . Through amendments to the original Agreement it reached a total of $1.85 million for a eight-year period. The Salvadoran Government also supported the Project with $485,000 of local currency as counterpart funds. The Research Triangle Institute (RTI), a U.S. private contractor, assisted with Project implementation by providing a resident adviser, short-term technical assistance, and training. B. Goal and Purpose of the Project The goal of this Project was to strengthen the democratic process in El Salvador. The purpose of the Project was to strengthen the ability of the National Legislative Assembly to serve as a national forum in which the concerns of the various sectors of society are articulated and linked to policy, program and budget formulation. C . Proj ect Components The overall Project consisted of three major components: (1) Technical Support Services, (2) Infrastructure Improvements, and (3) Constituency Services. The Technical Support Services Component focused on a series of activities designed to strengthen the ability of the Assembly to participate more actively and in a more informed fashion in policy dialogue. The Infrastructure Improvements Component, assisted the legislators to overcome their traditional financial and infrastructure constraints, which had impeded them from carrying out their responsibilities in an efficient manner. This also affected their ability to reach out to their constituents. Project and counterpart funds were used to install semi-private offices for the legislators. The third Component, Constituency Services, supported a pilot public education program, which included a number of activities designed to assist the Assembly to project a stronger institutional image to its national constituency and to encourage increased contact and communication between the legislature and citizens. D. Present Status of the Project The subject Project expired in accordance with its terms on June 30, 1998. On March 21, 1997, USAID approved the formal transfer of property title of all non-expendable property acquired with funds under the subject Grant Agreement to the Legislative Assembly with the understanding that they will efficiently use the commodities in furtherance of Project objectives (see Annex 1) . 11. FINANCIAL STATUS A. The followins table summarizes obligations and disbursements made under the subject Project: ELEMENT AUTHOR1 ZED TOTAL LOP* OBLTGETONS 01 Technical Assistance $1,761,000 $1,800,099 03 Facility Upgrades 7,300 7,032 04 Evaluation 50,000 0 05 Travel 31,400 24,492 08 Contingencies 3,000 300 Totals $1,850,000 $1,831,923 TOTAL REMAINING EXPENDITURES BALANCE $1, 800, 099 $ 0 7,032 0 0 0 24,492 0 300 0 $1,831,923 $ 0 * LOP: Life of Project. B. Summary of Counterpart Contributions: Description Cash by Source of Contribution: Personnel Logistical Support Technical Assistance/Training Commodities Physical Investments Incidental Expenses TOTAL COUNTERPART Total Counterpart Cumulative (In Colones) USAID LOP $1,850,000.00 Counterpart LOP $ 485,000.00 Total Project $2,335,200.00 Total Counterpart Allocated : $ 484,903.00** ** 99.98% of total counterpart required. See Annex 2. 111. PROJECT ACCOMPLISHMENTS USAID1s legislative strengthening Project has helped the Government of El Salvador begin to reweave the country's political fabric in an atmosphere of national reconciliation. By providing technical support, infrastructure improvements, and constituency services, USAID assisted the Legislative Assembly in its evolution from a rubber stamp Congress to an independent deliberative body during a period of profound political change. The Project met its intended goals. Project seminars and workshops, opportunities to observe foreign legislatures in action, information resources, and additional professional staff have increased deputies1 knowledge in three key areas: their responsibilities, the law and legislative process, and the legislature's relationship with the executive and judicial branches. As a result, the Assembly's deliberations have become more thoughtful and its relations with other branches of government have become more substantive. Project infrastructure improvements, such as building additional offices, enabled many members to work more efficiently and met with constituents for the first time. A project-inspired public awareness campaign sparked growing citizen interest in the Assembly and increased contacts between citizens and their representatives. As members of the Assembly have become more informed, capable and independent, they have had more influence in El Salvador's transition from authoritarian rule to democratic governance. The Assembly has become a leading forum for debating national issues and a marketplace for exchanging ideas from all political perspectives. The Project also faced some hurdles. Principal among them was persuading the dominant party of the wisdom of sharing its power with other groups. Some of the Project's resources, particularly the library and the computers, were under-utilized. Additionally there was a high turnover among legislative analysts hired under the Project, in part because of tension with staff who had been there longer, who didn't want to change how business was conducted in the Assembly. Most bills still originate from the executive, legislative oversight remains weak, and flaws resulting from a still insufficient staff as well as the deputiesr own inexperience often results in the need to revise and amend laws after they are enacted. Finally, progress was slow in some instances simply because democratic principles and processes were new to the Assembly, this resulted in the Constituency Services Component not being fully developed. IV. EVALUATIONS AND AUDITS A. Evaluations In February 1993, a mid-term Evaluation was carried out by the Center for Latin American Studies at the University of Pittsburgh financed by USAID. Their main findings included that: (1) the Project had taken small, successful steps to enhance the ability of the Assembly to engage in a more analytical and informed policy dialogue internally and with other branches of government. While the technical support services component of the Project was the most developed, infrastructure improvements were fitfully moving forward. Only the constituency services component of the Project had yet to be developed; (2) Legislators had received increased access to policy-oriented information as a result of efforts made by Project supported analysts to conduct research, write background papers, and provide comparative data for their committees; (3) It was also clear that the periodic workshops held for legislators and the observational trips to other legislatures had had a positive impact on the work of the Assembly; and (4) the policy research unit created by the Project was developed in a non-intrusive manner, reporting to the Technical Committee, an ad-hoc group appointed by the Executive Board to oversee the Project. B. Audits Based on the Grant Agreement, several one-year financial reviews in the form of audits of the Legislative Assembly Strengthening Project were carried out. The last audit of the subject Project, for the period January 1 to December 31, 1995, was carried out by Esquivel y Asociados, a local firm contracted by SETEFE to review the Project funded under the Local Currency Program. The results of the audit showed that the Legislative Assembly's income and expenditure statements and cash flows for the subject period complied with applicable regulations. V. SUMMARY OF LESSONS LEARNED AND RECOMMENDATIONS The USAID's Legislative Assembly Strengthening Project suggested several important lessons learned and ideas for further consideration: Take into account the country's commitment to democracy. Successful legislative strengthening depends on careful analysis and planning. Efforts must incorporate a country's political, social, and economic situation, and be flexible when circumstances arise that are neither predictable nor easily controlled. In the case of El Salvador, this Project could not have been as successful as it was without the 1992 Peace Accords and the subsequent 1994 elections. The Accords made it possible for all factions to participate in Salvadoran politics, while the election fulfilled that promise by seating representatives of all major political groups in the national legislature for the first time. Support from legislative leaders is vital. Initial and on￾going support from legislative leaders, political parties, and key staff is essential. In this Project, a technical committee composed of deputies representing all major factions served as the contact point. This was critical to gaining acceptance from the Assembly and ensuring the fullest and fairness possible use of assistance. In contrast, the ambivalence of leaders from the country's dominant party toward the Project was its biggest hurdle. Consider the overall needs of the legislature. While concentrating primarily on technical assistance, such as staff training and information resources, the Project also supported other major areas including infrastructure improvements and constituency services. In the Salvadoran Assembly's case, much of the Project's success can be traced to its responsiveness to the priorities identified by the legislators themselves. 4. Design-in sustainability whenever possible. Project activities should promote ownership so that once USAID assistance ends, the legislature assumes responsibility for outcomes. 5. Ensure equality so that the assistance benefits as many as possible. Assistance must be evenhanded to ensure it benefits as many legislators as possible. Providing office space, for example, enabled all deputies to carry out their legislative functions more efficiently and helped those parties participating for the first time feel like equal partners. 6. Do not ignore institutional reform. Legislatures that have functioned with only one party or been dominated by only one party will likely have undemocratic internal rules and operating procedures. Modernizing or reforming these vestiges of the past is critical, although the Project's record on this score was mixed. The Project was unable to overcome the resistance of the ruling party's members to internal rules reforms because they perceived the reforms as threats to their power. Focus outside the institution as well. An effective democratic legislature seeks and uses input from individuals and interests beyond the institution itself, such as civil society and the media. In El Salvador, civil society and the media have traditionally played minor roles so there was little impetus for the Assembly to be more accountable and transparent. To build public confidence in the legislature as a democratic institution, groups representing all parts of the political spectrum should know how to initiate contacts with legislators. And legislators should learn how to respond to and incorporate the input from this interaction into their decision-making processes. 8. Look for ways that the legislature can promote democratic change. The degree to which the legislature operates under democratic principles serves as an example for similar developments in other areas. 9. Challenge existing attitudes and beliefs. Confronting beliefs that undermine an effective, democratic legislature is critical to the success of a legislative strengthening Project. While the Assembly has begun to appreciate new concepts such as constituent relations, Salvadoran political thinking does not yet fully embrace compiling complete and transparent records of proceedings as a useful tool for accomplishing legislative goals and building public confidence in the institution. Citizen participation in the legislative decision-making processes should be the focus of future assistance to the Legislative Assembly of El Salvador. VII. POST-PROJECT MONITORING AND FOLLOW-UP ACTIONS All activities funded under the subject Project Grant Agreement concluded as of June 30, 1998. u:\democpub\docs\cp&g\~~~~~~~ ASSISTANCE COMPLETION REPORT 360 ANNEX #1 AGENCY FOR INTERNATIONAL DEVELOPMENT UNITED STATES OF AMERICA A. I. 0. SION TO EL SALVADOR C/O AMERICAN EMBASSY. SAN SALVADOR, EL SALVADOR, C. A. March 21, 1997 Excelentisirno Seiior Ing. Ramdn Gonziilez Giner Ministro de Relaciones Exteriores San Salvador Srita. Gloria Salguero Gross Presidenta Asamblea Legislativa de El Salvador San Salvador ASUNTO: Proyecto A.I.D. No. 51 9-0360 Fortalecimiento de la Asamblea Legislativa Carta de Im~lementaci6n No.20 Estimados Setiores: Por este medio acuso recibo de la carta de la Asamblea Legislativa fechada 13 de febrero de 1997, solicitando la transferencia formal del titulo de propiedad del vehiculo Ford Taurus Sedan aiio 1992, adquirido bajo el Proyecto en referencia. USAID ha revisado la documentacidn pertinente y ha encontrado que tanto el vehiculo como 10s demiis bienes, tambien adquiridos con fondos del Proyecto, listados en el Anexo No.1 de esta Carta de Implementacidn del Proyecto (CIP), fueron transferidos informalmente a la Asamblea Legislativa a trav6s de un memorindurn fechado junio 20, 1995 (Anexo No.2). His Excellency Eng. Ram6n GonzAlez Giner Minister of Foreign Affairs San Salvador Ms. Gloria Salguero Gross President Legislative Assembly of El Salvador San Salvador SUBJECT: A.I.D. Project No. 5 19-0360 Legislative Assembly Strengthening lm~lementation Letter No.20 Dear Madam and Sir: This acknowledges receipt of the Legislative Assembly's letter dated February 13, 1997, requesting USAID's approval for the formal transfer of property title of a 1992 Ford Taurus Sedan automobile, purchased under the referenced Project. USAlD has reviewed the pertinent documentation and has found that the vehicle as well as all other goods acquired under the Project and listed in Annex No. 1 of this Project Implementation Letter (PIL), were informally transferred to the Legislative Assembly by the means of a memorandum dated June 20, 1995 (Annex No.2). Por consiguiente, USAlD autoriza la transferencia formal del titulo de propiedad de 10s bienes listados en el Anexo No.1 de esta CIP, de acuerdo al Articulo 5, Secci6n 5.2 (c) Tituio de Pro~iedad del Convenio de Donaci6n. De conformidad a las regulaciones de USAID, solicitamos a la Asamblea Legislativa notificarnos del registro de todos estos bienes dentro del sistema de inventarios de la Asamblea. E! destino del vehiculo comprado bajo este Proyecto sera el de apoyar a la Gerencia de Operaciones Legislativas, incluyendo tanto a 10s analistas como a 10s t6cnicos, con el fin de ayudarles a que realicen las tareas de investigacidn encomendadas por las comisiones de la Asamblea. Sirvase aceptar las muestras de nuestra m5s aka consideraci6n y estirna. Therefore, USAlD hereby authorizes' the formal transfer of property title to the Legislative Assembly of all goods listed in Annex No.1 of this PIL, in accordance with Article 5, Section 5.2 (c) Title to Proaertv of the Grant Agreement. Pursuant to USAlD regulations, we request that the Assembly provide confirmation of the recording of these goods into the Assembly's inventory records. The use of the vehicle purchased under this Project will be to support the Legislative Operation Unit, including both the legislative analysts as well as technical staff, for the purpose of helping this unit carry out research assigned by the commissions of the Assembly. Please accept the assurance of our highest esteem and consideration. kxLl'~. bLkL Kenneth . Ellis Director ' J Annexes f Anexos) 1. Property List to be Transferred to the Legislative Assemby (Listado de Bienes a ser Transferidos a la Asamblea Legislativa) 2. Memorandum on Equipment/Furniture Transfer under Legislative Assembly Strengthening (Memorandum sobre Equipo/Mobiliario Transferido bajo el Proyecto de Fortalecimiento de la Asamblea Legislativa) Annex No. 1 (Anexo No. 1 ) PIL No. 20 Project 5 1 9-0360 (Proyecto 5 1 9-0360) Property List to be Transferred to the Legislative Assembly (Listado de Bienes a ser Transferidos a la Asamblea Legislativa) Item No. (Rubro No.) 1 2 3. Cost $ (Costo en $) Item Description (Descripci6n del Rubro) 1992 Ford Taurus Sedan 4 Serial Number (N6mero de Serie) Wood bookcases (3 each) (Libreras de madera) Sofa 5 lFACP50U7NG24 0322 (Sof6) Occasional chairs (2 each) 6 (Cama de coioch6n) I I 15,775.00 N/ A N/A (Sillas Casuales) Round teak table-4chairs (Mesa redonda de teca-4 7 8 425.63 404.38 N/A sillas) Fofding Tables (3 each) 497.70 N/A (Mesas Plegadizas) Chairs for folding table (2) (Sillas para mesa plegadi.) MattresdBox Spring Washing machine (Lavadora de Ropa) Queen-size sofa bed (SofiI cama tamaiio reina) Double-size sofa bed 1 TOTAL 1 $ 19,238.77 213.13 N/A (SofiI cama tarnaiio mat.) Hassocks (4 each) (Banquetas) 46.08 N/A N/A N/A N/A N/A 54.1 5 205.07 725.69 427.19 41 4.75 N/A 50.00 ANNEX No.2 (ANEXO No.2) 7ESEARCH TRIANGLE INSTITUTE PIL No. 20 Project No. 519-0360 (Proyecto No. 519-0360) TO: Mr. Armando Pincda, Oficiai Mayor Legislative Assembly FROM: Dr. Allan Austin, Chief of Parry Research Triangle Institute StJBJECT: Equipment/furnint~~~ransfer under kgislative Assembly Strengthening Project USAlD Contract 5 l9-O3M)-C-Wll7O4Xl; Project No. 5 19-0360 CC: L. McGhtt. USAIDfEI Salvador M. Herrcra, US-/EI SalvadorlODI J. Rintoul, RTI ORC H. Ryon, RTI Project Manager In accordance with regulations governing the subject conuact. Research Triangle Institute will transfer the vehicle purchased under this project to the Legislative Assembly at the conclusion of RTI's contract with USAID. In addition. a memo signed by USm contracting officer Paula Miller indicates that any furniture purchased under this project should also be turned over to the Legisiative Assembly. A copy of the memo is actached for your reference. 1 have also attached a list of the items purchased under this conuact. As Rn's contract with LTS.%fD wiI1 conclude on June 30. 1995. we wouid like to trader the items on this list to the Lesjstative Assembly at this time. The vehicle's registration through USAID wifl be effective until June 30. 1995. rhe tennination date of RTI's conuact. Thc vehicle is king vaasfcmd with the understanding that it will be available to the project coordinator contracted through USAID (potentially Mr. Rafael Rctana) until the conclusion of the subject project. which extends past the completion dau of Rn's conaact. The coordinator will direct activities for USAID during the remainder of this project and will require the use of the vehicle to conduct project activities. At the completion of the project, the coordinator will nm the vehiclc to tbe bgislative hscmbly. ~lus~~ow to ayour agreement with chis ammgcment. Thank you for ~ohr,;. . or.~osb 02 Anaando Pincda Navas-Oficial Mayor Print Name and Title ost O%ce BOX 12194 Researc9 %angle Park. North Carolma 27709-2194 :'ecrr)rs ma =~:-mnn F~W. 970 rrlr-came r--ka- mr~~nrk -. -- -- MEMORANDUM TO: Mr. Armando Pii bgislative Assembly FROM. Dr. Allan Austiu la accordance with the subjetx conaact, I ananged with you as the Oficial Mayor for he Legislative Assembly for the transfer and pickup of rhc f~raiturt pt~~h;rsed under this project (as detailed bclow): 3 wooden bwkcascs 1 sofa 2 occasional cb I mund teak table witb 4 chairs 3 foldgig &1es (with 2 chairs) 1 matncssmox spring s I Kemnoh' washing machine 1 qutca-sixc sofa &d (gray) 1 double-size sofa bai (dark blue) 4hassocb Dr. JosS Oscar Armando Pineda Navas - Ofisial Mayor Print Name and Titit ,St Oftice Bax 12194 Research Triangle Park. Nonh Camfina 277042194 !lelJhone: 919 541 Fax: 9195414985 Cable RESfRINS Telex 802509 (RTI RTPK) / .... hg@lative wbly String' +ng Rojta . ' USAID.CO~~~~ No. 5194" 240-117MH) PROJECT PROPERN UST - Itaa No, - . . 1 2 3 4 5 6 7 8 9 10 1 I 1992 Ford Taunu Sedan Wood bookc-rea (3 each) Sofa Occasional chain (2 each) Round teak table with 4 chain Folding rabies (3 each) Chun for folding cable (2 each) MattreWbox spring Kenmorc washing machine Qua-size sofa bed (gray) Double-size sofa bed Wrk blue) . . . .- NIA NIA NIA NIA Nl A NIA NI A NI A NIA NIA NIA 3,703.00 3.510.00 4320.00 1.850.00 400.00 470.00 1.780.00 6,299.00 3.708.00 3.600.00 - .Ex. Rare . . 870 8.68 8.68 8.68 8.68 8.68 8-68 8.68 9 68 8.60 ~aiuer YNEX No.2 AEXO No. 2) - 'SEARCH TRIANGLE INSTITUTE hlE&IORANDUIM June 20, 1995 PIL No. Project No. 519-0360 (Proyecto No. 519-0360) TO: Mr. Armando Pineda, Qficid Mayor Legislative Assembly FROM: Dr. Allan Austin. Chief of Parry Research Triangle Institute SUBTECE Equipment/furniturc*transftr undcr Legislative Assembly Strengthening Project USAID Contract 5 19-0360-C-00-1 l7W; Project No. 519-0360 CC: L. McGhtt, USAIDJEI Salvador M. Herrcra, USAIDIEI SalvadodODI J. Rintoul, RTI ORC H. Ryon. RTI Project Manager In accordance with regulations goveming the subject conuact. Research Triangle Institute will transfer the vehicle purchased under this project to the Legislative Assembly at the conclusion of Rn's conuact with USAID. In addition. a memo signed by USAID contracting officer Paula Miller indicates that any furniture purchased undcr this project should also be turned over to the Lrgislative Assembly. A copy of the memo is attached for your reference. 1 have also attached a list of the items purchased under this conuact. As RTI's contract with US.%ID will conclude on June 30, 1995. we would like to tranfer the items on this list to the Legisiative Assembly at this time. The vehicle's registration through USAID will be effective until June 30, 1995. the termination date of RTT's contract. The vehicle is being uansfemd with the understanding that it will be available to chc project coordinator contracted through USAID (potentially Mr. Rafael Rctana) until the conclusion of the subject project, which extends past the completion date of Rn's connact. The coordinator will direct activities for USMD during the remainder of this project and will require the use of the vehicle to conduct project activities. At the completion of the project. the coordinator will renun the vchicle to the Legislative Assembly. pleas6 below to h&hyour agreement with &is arrangement. Thank you for Dr. Josi O& Amando Pincda Navas-Of icial Mayor Print Name and Title PROJECT PROPERn U.57 - ltarr No;; - . . 1 2 3 4 5 6 7 8 9 10 I I 1992 Ford Taurus SeQn Wood b0cpkc-m (3 Sofa Round teak table with 4 chaip Folding tables (3 each) Cham for folding table (2 each) Mattrcssfbox spring Kenmore washing machine Queen-size sofa bcd Igny) Double-size sofa bed (dark blue . . . -- Hassocks; iJ each) MIA NIA N/A NIA Nl A N/ A NIA N/ A NI A NIA NIA 3,703.00 3.510.00 4320.00 1.850.00 400.00 470.00 1.780.00 6.299.00 3.708.00 3.600.00 d ooomo~ w ONNU++ dm m mm mmwom o mmm a* o ood N 000moun + moommw m3 t- r-t- --a03 o 344 mm o oom ......................... ...... m o+mmom d mmmm~r- NO 3 3- nmmmm n omm md o OON cs O~WOON m ~wmm~m mm n mm, oooma n !no- wm o oom m ommm~m w ommoma mo o DO wwaoxr 3 mw~ in ~i nnm 300700 C(3D1303 C3 0 ;3 :3<30<3O 000 0 0 00 o 5033~~ c 001.700 30 n 09 ,33009 o -c-~n no o "on 3. c. ,. <- -, .-, n. . 7. ->3d;C'= 0 c 3 3 .>>'>.>C , C, 3-. ,> 3 -> mmmmma Ln^iPSLnr.N ~L~LIPCO~ NNNOOO O00000 NO3 www -t-- d 3 .- 0 0 0 d 7.4 P * > E G6 oooc 93 00 ooo ooo 5 25 U d mmm tj, 3rli LI L', m rt 0 mu? d rl ul L'I i $ 0 U7 m r 0 0 w i 0 0 cl i in X . . 0 40 +id 1 WZ N il 0 000 . z ,000 N 0 U 000 U WWU W w nm~ n '000 b o 'mmn k 444 d a m Ln m