1 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Operational Guidelines
Liberia Cash for Work Temporary
Employment Project (CfWTEP)
Implemented by the Liberia Agency for Community Empowerment
(LACE)
September 4, 2008
These Operational Guidelines and the attached TORs are an integral part of the Liberia Agency for Community Empowerment Operation Manual dated May 2, 2005 and amended on April 20, 2007.
2 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Contents
I. Introduction to the Operational Guidelines .................................................................................. 5
Who are the main users of these guidelines? .............................................................................. 5
What’s in the guidelines? ............................................................................................................ 5
II. Background on the CfWTEP.......................................................................................................... 6
The Emergency Food Crisis Response Program ......................................................................... 6
What’s the objective of the CfWTEP? ........................................................................................ 6
What are the main features of the CfWTEP? .............................................................................. 6
III. Implementation Responsibilities of LACE and of its Implementing Partners .......................... 7
IV. Geographical targeting and phasing .............................................................................................. 7
V. Selecting Implementing Partners ................................................................................................... 8
VI. Deciding the wage level ................................................................................................................... 9
VII. Communications campaign ............................................................................................................ 9
VIII. Staffing and supervision ................................................................................................................ 10
IX. Involving communities .................................................................................................................. 10
X. Selecting and designing projects .................................................................................................. 11
What kind of activities? ............................................................................................................ 11
How to design activities that will allow vulnerable and special groups to participate? ............ 12
How will LACE evaluate the quality of the proposal done by the Implementing Partners? .... 12
XI. Selecting participants .................................................................................................................... 12
What are the basic criteria to select participants? ..................................................................... 12
How to verify these criteria? ..................................................................................................... 13
What other principles should guide the selection of participants? ............................................ 13
How to communicate working conditions to the participants? ................................................. 14
XII. Procurement and use of equipment and materials ..................................................................... 14
XIII. Attendance and payment logistics ................................................................................................ 15
Who is responsible for tracking attendance of the workers? .................................................... 15
How to divbide work and set rate of payment? …………………………………………… 15
At what frequency should payments be done? .......................................................................... 15
Which organization is responsible for the payments? ............................................................... 15
3 Operational Guidelines – Cash for Work Employment Program (CfWEP)
How are the payments done? .................................................................................................... 16
XIV. Reporting and Monitoring and Evaluation ................................................................................. 16
How should Implementing Partners report to LACE? .............................................................. 16
In which areas should LACE concentrate its monitoring? ........................................................ 16
XV. Annexes .............................................................................................................................................. 18
Annex 1: Food security map – CFSNS 2006 ............................................................................ 19
Annex 2: Tor for LACE and Implementing Partners ................................................................ 20
Annex 3: Key points to communicate with communities ......................................................... 23
Annex 4: Job description for Community Facilitator ............................................................... 25
Annex 5: Contract for workers .................................................................................................. 26
Annex 6: Daily attendance sheet ............................................................................................... 28
Annex 7: Workers’ payroll form ............................................................................................... 29
Annex 8: Table of indicative task rates ..................................................................................... 30
Annex 9: Biweekly Project Summary ....................................................................................... 32
4 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Acronyms
AIDP Agriculture and Infrastructure Development Project
CEP Community Empowerment Program
CfWTEP Cash-for-Work Temporary Employment Project
GOL Government of Liberia
LACE Liberia Agency for Community Empowerment
LFCRP Liberia Food Crisis response Program
UNDP United Nations Development Program
UNMIL United Nations Mission in Liberia
WB World Bank
WFP World Food Program
5 Operational Guidelines – Cash for Work Employment Program (CfWEP)
I. Introduction to the Operational Guidelines
Who are the main users of these guidelines?
The primary users of these guidelines are:
The Liberia Agency for Community Empowerment (LACE) who has been entrusted to
implement the Cash-for-Work Employment Temporary Project (CfWTEP) by the Government of
Liberia (GOL) and the World Bank;
The Implementing Partners who are subcontracted by LACE to implement projects under the
CfWTEP.
In addition, these guidelines may be useful to other institutions and agencies (ministries, local
governments, other development partners, etc) who may need to familiarize themselves and understand
the operational modalities of the CfWTEP.
These guidelines may be revised from time to time, as needed, and changes must be approved by the
Board of LACE and must receive the “non objection” of the World Bank.
What’s in the guidelines?
The Guidelines provide detailed procedures on how the project should be implemented by LACE and its
Implementing Partners.
They provide a background overview of the CfWTEP followed by:
Geographical Targeting – Examines the criteria to be used for the selection of counties that will
benefit from the project, and for the selection of areas or districts within counties.
Implementing Partners – Provides the rules under which LACE will select and provide
contracts to its implementing partners for the project. This section is particularly relevant for
LACE.
Wage Level – Explains how the daily wage rate for the project beneficiaries has been set, and
how it may be revised.
Communications campaign – Provides guidelines on what messages to communicate to
beneficiaries and how these messages might be communicated to target communities; this section
is of particular interest to LACE and its Implementing Partners.
Supervision and staffing – Describes how the work should typically be organized in the field
and the staff that Implementing Partners will need to recruit in order to complete this work.
Involving communities – Suggests means for Implementing Partners to involve communities in
different aspects of the project.
Project selection – Provides criteria and guidance on how the projects should be identified by the
Implementing Partners and communities.
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Participant Selection – Describes how the Implementing Partners should select the workers to
benefit from the project, in a manner consistent with CfWEP’s goal to benefit vulnerable
households in the community.
Procurement and Use of Equipment and Materials – Details how equipment and material
should be procured by the Implementing Partners, and disposed of or donated at the end of the
project.
Payment Logistics – Clarifies how and when payments should be made to workers.
Reporting Monitoring and Evaluation – Describes how Implementing Partners should report to
LACE and the areas that LACE will monitor.
Annexes – Provide a number of forms and tools to facilitate project implementation are provided
in annex either for the use of LACE or for the Implementing Partners. Electronic copies in Excel
or Word format are available at LACE.
II. Background on the CfWTEP
The Emergency Food Crisis Response Program
The CfWTEP is part of a USD 10-million financing, which has been approved by the Board of the Bank
and signed by GOL and the WB in a grant agreement dated June 21, 2008. It represents the contribution
and support of the WB to the Liberia’s Food Crisis response Program (LFCRP).
In addition to the CfWTEP (which has a total cost of USD 3 million), this Emergency Food Crisis
response Program includes two other components.
An Agricultural Productivity Intervention (USD 3 million) - its objective is to raise production
through increasing yields and reduced post-harvest losses. It will be implemented under the umbrella of
an existing World Bank-financed project, the Agriculture and Infrastructure Development Project (AIDP).
Food Support for Vulnerable Women and Children (USD 4 million) - to be implemented by the
World Food Program (WFP).
For more details, see the Emergency Project paper – EPP – that describes the program.
What’s the objective of the CfWTEP?
The objective of the CfWTEP is to provide income support to vulnerable households in rural and urban
areas.
What are the main features of the CfWTEP?
7 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Budget and Costs - The total budget available for the CfWTEP is USD 3 million of which 25% will be
allocated for project management costs for LACE and its implementing partners and 75% of which will
be used for direct project costs (i.e. labor and materials/equipment). Out of the direct project costs,
around 10% will purchase materials and equipment. This allocation is designed to maximize the funds
that go into the hands of the workers benefiting from the project and to create the maximum number of
labor days.
Number of People Employed - The project was expected, at the time of approval by the World Bank
Board, to create 800,000 person/days of labor. However, this estimate was based on a daily wage of USD
2,5 – as this rate was revised during the preparation of these guidelines, it is now expected that the
number of people employed by the project will be somewhat reduced to 680,000 person/days of labor.
Duration - The project’s duration is expected to be 2 years, approximately from October 2008 to October
2010.
Type of projects –Projects to be implemented by the CfWTEP will be simple in nature since the amount
of materials and equipment to be used is very limited. They have to response to needs of the local
community where the project is implemented, and this will be achieved through community consultations.
Implementation arrangements - The CfWTEP is implemented by LACE, which will subcontract
Implementing Partners to run the projects. The respective roles of LACE and of its Implementing Partners
are described in the following section.
III. Implementation Responsibilities of LACE and of
its Implementing Partners LACE is the government agency which has the overall responsibility for project implementation and the
overall fiduciary responsibility. LACE will contract implementing partners in the various counties where
the project will be implemented. Implementing Partners will have the daily responsibility for project
operations in the field and will report to LACE
Detailed Terms of Reference for LACE and its Implementing partners are attached in
Annex 2.
IV. Geographical targeting and phasing
This section is of more particular use to LACE, as LACE is responsible for drawing implementation plans
targeting the counties where the CfWTEP will intervene.
Several criteria will guide the geographical targeting and phasing of the CfWTEP, setting out the
counties in which CfWTEP will be implemented and establishing its sequence of expansion from one
county to the next. The following criteria will be used:
Vulnerability– The objective of CfWTEP, as a part of the larger Emergency Food Crisis Response
Program, is to mitigate the consequence of the food price crisis and support vulnerable households; thus,
the first criterion to be used is food vulnerability. The counties targeted by the CfWTEP will therefore be
8 Operational Guidelines – Cash for Work Employment Program (CfWEP)
the ones that have the highest food vulnerability, according to the Comprehensive Food Security and
Nutrition Survey (CFSNS) of 2006.
A Food Security map extracted from the CFSNS 2006 is included in Annex 1 and shows
which counties are more vulnerable than others.
LACE’s Capacity – As the project is an emergency project and should start rapidly, it would be
expeditious to begin operations where LACE already has significant experience and has established
offices. This will allow LACE to kick-start and monitor the project where it has maximum capacity, and
expand progressively to the other targeted counties over the duration of the project.
Availability of Banking Facilities – Access to banking facilities is very limited in Liberia. Commercial
banks are active only in a few counties including Montserrado, Margibi, Bong, Grand Bassa and Nimba.
Within these counties, banks are limited to the urban areas and to industrial compounds. In order to
facilitate the payment of workers, the project will start in areas where banking facilities exist, particularly
during the first year. As LACE and its implementing partners acquire more experience in the
implementation of the CfWTEP, it will move to counties where commercial banks are not present. Other
projects have partnered with the commercial banking system in the past to facilitate payments in areas
where formal banks are not established. A similar arrangement is also possible in the case of CfWTEP.
Markets Functioning – Cash-for-work projects may have the secondary effect of raising the food prices
in areas where local markets are not functioning properly. The project will therefore start in areas where
markets exist and function, and enter other areas during the second year (e.g. the southeast) while
carefully monitoring of the impact of the project on local market prices needs to take place (see section on
“Monitoring and Evaluation”).
Board of Director Recommendation- Given the complexity of the criteria, the Board will play a key
role in decision-making with regards to the distribution of CfWTEP projects and the sequencing of these
projects.
V. Selecting Implementing Partners
The role of LACE and its implementing partners is described in the section III. A single source selection
process is recommended in the case of CfWTEP and is consistent with paragraphs 3.10 and 3.16 of the
guidelines for the selection of consultants by World Bank borrowers (May 2004). This approach is
justified because: (a) under current project design, contracts with Implementing Partners will be for
amounts less than USD 2,500 (paragraph 3.10); (b) payments to workers, which makes up the bulk of
project funds, will be made by commercial banks; (c) procurement of tools and equipment will be made
directly by LACE; (d) NGOs will provide services to select, organize and monitor workers; (e) LACE has
knowledge of established NGOs with good local knowledge and strong capacity (paragraph 3.16); and (f)
NGOs will be required to respond quickly due to the emergency nature of the project (paragraph 3.10).
9 Operational Guidelines – Cash for Work Employment Program (CfWEP)
VI. Deciding the wage level
The daily wage rate for unskilled workers has been fixed at USD 3. This rate is considered low enough to
attract the most economically disadvantaged individuals and households. Wages should not be too high,
in order not to entice people away from their regular livelihood activities.
Even with a rate as low as USD 3 per day, and given the fact that work will be performed mostly by task
(see section XIII on paying by task) and with a certain flexibility in terms of working hours, it may attract
individuals who already have an income. It has been reported, for instance, by other agencies
implementing CfW projects in Liberia that some teachers may be tempted to enroll – tight controls should
ensure that this is not the case.
The project will also employ a limited number of skilled workers: either as supervisors (responsible for a
group of workers) or as workers performing skilled labor in some limited cases. These skilled workers
will be paid at a rate of USD 5 per day.
VII. Communications campaign
In order to avoid suspicion on the part of some community and government stakeholders, it is essential to
inform officials and community members from the outset of the purpose of the CfWTEP and of its
general methodology.
The following key issues should be considered:
Employment is for a limited number of days - The community should be made fully aware that the
CfWTEP is being provided during a limited timeframe for a specific and limited purpose. There should
be no expectations from the community members that the project will run indefinitely, nor should the
project be regarded as a long-term source of employment.
Importance of community participation - LACE and its implementing partners should underscore the
importance of broad community participation (not only community leaders and government officials) in
the processes of selecting development projects and programmatic activities, and the fact that the projects
should be selected by the communities themselves and not imposed on them.
Make beneficiaries aware of the more common forms of fraud – When workers receive their payment
they should be informed of common forms of fraud, including bribes, dishonest traders and money
changers, in order to avoid unjust extortion of money in form of “taxes” and “fee services;” community
members should be made aware that there are no "taxes" or other "fee services" on the daily salary they
receive.
A check list of important issues which should be addressed in the communications
campaign with communities and individuals is provided in Annex 3. It can be used both by
LACE and its implementing partners.
10 Operational Guidelines – Cash for Work Employment Program (CfWEP)
VIII. Staffing and supervision
The Implementing Partners of LACE will need to provide experienced staff to fulfill their responsibilities.
This staff will consist of community facilitators and other necessary staff. The role of the community
facilitator will be to coordinate the subproject in the area on behalf of the Implementing Partner. He/she
will be responsible for all community mobilization processes and selection of participants, and will
supervise the Logistic(s) Officer during the implementation of the subproject. The Implementing Partner
will be responsible for the supervision of progress of the project in the field.
Groups of workers will be supervised by Group Leaders. The Group Leader is not staff of the
Implementing Partner but a community member recruited as a skilled worker. His/her task is to organize
the daily work of his team, monitor presence of the workers and maintain the attendance sheets, set the
tasks to be accomplished by the worker and the number of hours involved, and verify that the task has
been done.
A more detailed job description for the Community Facilitator is provided in Annex 4.
IX. Involving communities It is essential for the success of the project that communities are involved in the implementation right
from the beginning. The Implementing Partners will spend time facilitating discussions with various
groups within the community, using participatory tools that LACE has already development for the
Community Empowerment Project (CEP).
The involvement of the community should be particularly strong in the following aspects:
Defining selection criteria for beneficiaries, and in particular criteria to ensure that vulnerable
families are given priority;
Disseminating information on the objectives of the project;
Carrying out the actual selection beneficiaries, and ensuring that the criteria are respected.;
Selecting appropriate Cash-for-Work activities;
Maintaining order on payment days;
Providing feedback on activities;
Liaising with local leaders to obtain government permissions and support.
To facilitate project implementation, especially in the selection of participants, supervision, and
monitoring, the Implementing Partners will work with existing community structures. Following the
initial assessment and identification of target communities, community facilitators will invite local leaders
to an introductory meeting to explain the CfWTEP, solicit feedback, and build relationships.
11 Operational Guidelines – Cash for Work Employment Program (CfWEP)
X. Selecting and designing projects
What kind of activities?
Activities to be implemented under the CfWTEP (also referred to as “projects” in this manual) will be
selected by the communities themselves with the support of Implementing Partners. They should not be
imposed by the Implementing Partners, by LACE or by the local governments.
Given some of the criteria already established for the selection of these projects, in particular the fact that
they should be implemented with at least 75% of the costs given to labor, they will most probably be
limited to very simple type of works.
The criteria to guide the selection of projects are the following:
At least 75% of the cost of the project should go into labor, including 10% for basic tools and
materials;
The project should provide a public good or service; this also implies that all works should be
done on public, state or community owned land but not on private land;
The project should benefit the wider local community, and not a few individuals or families;
The project should not affect negatively the environment or have negative social consequences, as
described in the Environmental and Social Management Framework (ESMF) already in use in the
CEP.
The project should be able to be completed in the time period allotted.
The following is a list of possible activities (but communities and implementing partners may propose
other activities as long as they meet the criteria described above).
In rural areas:
Bush brushing, either along roads or to clear non-private agricultural land (or for any other
purpose that would serve a community or public need);
Rock breaking for the roads;
Cleaning and replacement of culverts;
Drain clearance along roads;
Construction of small wood bridges along roads that would be rehabilitated under the project but
would remain otherwise impassable at some points.
In urban areas:
Street sweeping/cleaning;
Drainage clearance;
Painting of public buildings and street walls (particularly needed after the rainy season);
Painting of cross walks;
Rehabilitation of recreational spaces;
Small rehabilitation of schools, health posts and other community buildings.
The activities proposed should be well coordinated with other projects. For example, it is recommended
that the roads targeted by the CfWTEP be feeder roads and not the main roads that are already the target
of the UNMIL project.
12 Operational Guidelines – Cash for Work Employment Program (CfWEP)
How to design activities that will allow vulnerable and special
groups to participate?
It is important to include a range of activities in which different kinds of people can take part. This means
people that are more vulnerable, women, or groups that are less powerful within the local community.
It is also very important that community members are not diverted from other productive opportunities or
appropriate coping mechanisms, regardless of how vulnerable they are. It is therefore useful to consider
the following factors when designing the activities:
Time commitment required: in terms of daily scheduling and overall length of the project.
Particular attention should be paid to the timing of agricultural activities;
Work organization: people should be allowed to combine their participation in the project with
their other activities, for example farming, to the extent possible. For example, workers may be
paid to do a certain task, and then allowed to do it at the time of the day which is more convenient
to them. It will be the role of the group leader, with the support of the logistics officer, to organize
the work to allow maximum flexibility (within reason);
Location: paying attention to travel time to location in particular;
Type of work: light/heavy, cultural acceptability, especially with regard to any gender, ethnic or
other division of labor;
Trade offs: Impact on existing workload and access to other productive opportunities;
Adapting work to allow vulnerable people to participate: for example giving tasks such as
supervision, counting or clerking, or preparing food, to people who cannot manage heavy labor.
How will LACE evaluate the quality of the proposal done by the
Implementing Partners?
LACE will review the proposals submitted by the Implementing Partners and check the following basic
points:
Community needs: The project must be demand-driven and reflective of real community needs.
Intensive unskilled labor: The project should employ a large number of unskilled laborers, in
order to allow the widest dispersal of cash to families.
Appropriateness for target groups: Care should be taken to see whether the physical labor
excludes community members from participation due, for example, to physical constraints or for
other reasons.
Technical viability: Community-selected projects should not require a range of technical
expertise that is not available locally or within the implementing partner.
Long-term benefit to large segments of community: The project should provide a long-term
benefit and lasting contribution to the community as a whole.
XI. Selecting participants
What are the basic criteria to select participants?
The CfWTEP has a number of basic criteria to guide the selection of participants (also referred to as
“beneficiaries,” or simply “workers,” in this manual).
13 Operational Guidelines – Cash for Work Employment Program (CfWEP)
These criteria are:
To be over 18 years old1;
The person should be to perform able the work with no risk for his/her health or that of others;
Participants should not hold a public office or be on the payroll of a public entity.
How to verify these criteria?
These criteria may not always be easy to verify. The community facilitator should involve the community
to assist in the verification.
Regarding the age of participants - In case of doubts on the age of person, the Community Facilitator
should seek confirmation of the person’s age from family members, or neighbors. In case of serious
doubts, the community facilitator should refuse the participation of the person (and maybe discuss with
the family the participation of another family member).
Regarding health issues - The community facilitators should ensure that pregnant women are not
selected, and that women are informed that they will not be allowed to carry babies on their backs while
working.
Regarding incompatibility with employment in the public sector - The community facilitator should
ensure that this is well known by the people who come forward to be selected, and ask the community
committee to review the list of selected participants with him/her. This may concern teachers for example.
What other principles should guide the selection of participants?
In addition to the above criteria that each recruited individual must meet, the Implementing Partner will
discuss and guide the selection of the participants with the community along a number of targeting
principles. These principles are:
Ensuring that the maximum number of vulnerable households are included - This implies having
discussions with the community on the criteria that defines vulnerability in that particular community, and
if the community is relatively small identifying the vulnerable households. Once there is an agreement on
what it means to be vulnerable within the community, the community facilitator should ensure that these
criteria are known by all community members and that information to that effect is widely disseminated,
so vulnerable households have the opportunity to come forward when selection actually takes place. The
recruitment of workers from female-headed households and households where no-one is employed should
also be encouraged.
Paying attention to the more remote or isolated settlements – People living in the main townships or
close to the centre of a community or the main road usually have a better chance to participate in
discussions, to get timely information, to be able to come to meetings, and to be present first when the
informational session actually takes place. The community facilitator should ensure that all the
settlements, including the more remote ones, have access to timely information and have a chance to
participate and be selected. This may include spending time visiting the more isolated villages, allowing
1 As per the minimum working age set by the Liberian Ministry of Labor. A person under 18 years might be able to
participate if they are able to show evidence of having received the special permission of the Ministry of Labor.
14 Operational Guidelines – Cash for Work Employment Program (CfWEP)
enough days between a meeting announcement and the actual meeting, and doing the selection process in
a few locations (not only in the most central one or in the main township). Workers should be recruited
from reasonable distance to the sites, since no transport will be provided.
Ensuring participation of people who cannot take part in heavy labor – Disabled people, for
example, should have a chance to work doing less heavy tasks. This may require that tasks are designed
or organized especially for them.
How to communicate working conditions to the participants?
The general communications campaign and the community meetings that will be held before the actual
selection will provide all the key information regarding the project and also the working conditions under
which people are expected to work, including rights and obligations.
Participants will be asked to sign or thumb print a simple one page contract when they are recruited. The
community facilitator should read the contract aloud to the participant, and make sure he/she understands
it.
A sample contract is attached in Annex 5.
XII. Procurement and use of equipment and
materials
Once activities are selected, necessary tools and materials should be procured. The procurement will be
done by LACE.
Whenever possible, LACE will try to purchase equipment locally, in order to benefit the local market.
Purchased equipment will be distributed by the logistics officers to the Group leaders and will remain
under the supervision of the group leaders until the end of the activity.
At the end of the activity, the remaining tools and equipment may be transferred to the community
committees, or to local governments, or be retained by LACE for future use in other projects.
In general, small individual protective equipment should be left to the participant at the end of the
activity. Bigger pieces of equipment, or equipment that cannot be easily distributed among participants
(such as wheel barrels) or pieces of equipment that are expensive and may incur substantial savings for
other projects will be distributed either through a lottery system, or left to community leaders to be re-
used in other community activities. LACE will decide this issue on the basis of the recommendations
provided by its Implementing Partners.
15 Operational Guidelines – Cash for Work Employment Program (CfWEP)
XIII. Attendance and payment logistics
Who is responsible for tracking attendance of the workers?
The Implementing Partner (and more specifically the logistics officer) has the overall responsibility for
keeping daily records of workers’ attendance. At the work site, it is the group leader who should keep the
attendance sheet and record the number of days worked by each worker.
A sample daily attendance sheet is provided in Annex 6. This is the sheet that the Group
leader should fill every day and submit every week to the logistics officer of the
Implementing Partner.
The Implementing Partners will prepare the payroll sheets every two weeks, based on the daily attendance
sheets submitted by the group leaders. These payroll sheets should be submitted to the finance section
LACE which will approve the payrolls and authorize the payments.
A sample payroll sheet is provided in Annex 7.
How to divide work and set the rate of payment?
The easiest method of ensuring work is equally carried out is to divide a job into equal units or tasks. The
rate can then be paid based on an estimate of how long it will take to complete the tasks and by applying
an agreed rate. The Implementing Partners will be responsible for determining the rates per task based on
internationally accepted rates.
An indicative table of internationally accepted rates for common tasks is provided in
Annex 8.
At what frequency should payments be done?
Payments should be done every two weeks. It is important that participants are aware of this, and know on
which date they will get paid.
Which organization is responsible for the payments?
LACE will have an agreement with a commercial bank to handle the payment of the workers. LACE and
the commercial bank will discuss the modalities of payment. Participant workers may be directed to a
designated teller of a nearby bank to receive their payments. Where there are no banks, the Community
16 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Facilitator, LACE and the commercial bank will design a strategy for the workers to receive their
payments at their place of work. The bank payments will be made by bank staff.
How are the payments done?
The payments are made to the worker in the presence of the group leader, who verifies the identity of the
person receiving the payment and guarantees that it is actually the person who did the work, and under
monitoring of the implementing partner. All workers of a group will receive their individual payments at
the same time. Payments are done in USD and the bank officer should explain to the worker what the
banknotes are (if the worker is unfamiliar with cash and USD notes) and provide information on the
exchange rate of the day between USD and Liberian Dollars.2
Beneficiaries receive the exact amount due and sign the payroll sheet on receipt or put a thumbprint next
to their name in recognition of received payment. All payments sheets must be countersigned.
Payrolls for payments are to be collected by Community Facilitators and returned to LACE, who will
retain them with bank statements and other financial documents for financial tracking and audits.
XIV. Reporting and Monitoring and Evaluation
How should Implementing Partners report to LACE?
Implementing Partners should report to LACE on a biweekly basis. They should complete the biweekly
summary sheets and submit them together with the attendance sheets to LACE, so LACE can verify and
prepare the payroll sheets.
A sample biweekly summary sheet is provided in Annex 9.
In which areas should LACE concentrate its monitoring?
M&E done by LACE should focus on the following areas:
Selection of workers - Is the process of beneficiary selection effective and does it succeed in reaching the
most vulnerable segments of the population?
Gender and youth - Are at least 30% of the workers women? Are the activities designed in a manner that
encourages the employment of women? Are youth benefiting from the project?
Production and outputs – Are outputs produced on time? What about quality of outputs?
2 Note that in Liberia, the US Dollar and the Liberian Dollar are both equally accepted currencies and are freely
exchangeable. If concerns arise over the use of US Dollars in payment, Liberian Dollars may be used.
17 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Awareness and communications - Is sufficient information given to communities and other
stakeholders? Does this information cover all the key point described in section VII on communications?
Attendance and ghost workers - Are all the individuals reported as present in the timesheets actually
working?
Payments: Are payments made on time? Do participants receive the correct amount of money? Is cash
distribution satisfactory?
Markets: Is there any impact of the project on local market prices? (This aspect should be monitored by
the Ministry of Agriculture).
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XV. Annexes
19 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Annex 1: Food security map – CFSNS 2006
20 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Annex 2: Tor for LACE and Implementing Partners TOR for LACE
1. LACE will hold consultations with Government and the World Bank on the project legal status
and launching.
2. LACE will follow up on the grant agreement with Ministry of Finance.
3. LACE will work with international consultants on designing the TORs for the key staffs that will
be recruited to supervise the cash-for-work project; LACE will work on the tentative workplan
for 2008-2010 for CFW.
4. LACE will open separate account in which the funds for cash-for-work project shall be received
from the World Bank. Prepare Annual Workplan and Budget, and a procurement plan
5. LACE will monitor and evaluate the CfW project activities throughout the country.
6. LACE will prepare project reports in accordance with the MAAFP and the OM. Each project
report shall cover a period of one calendar year and shall be submitted to the World Bank.
7. LACE will provide monthly FMRs to the World Bank on the CfW project, and quarterly financial
and performance report to the Board of Directors of LACE.
8. LACE will oversee and ensure the recruitment of Local NGOs, community facilitators for the
purpose of implementing the CfW project in the communities.
9. LACE will ensure that at least 680,000 man-days of temporary jobs are created during the life of
the project (i.e. 340,000 man-days per year).
10. LACE will ensure that the CfW begins in Monrovia, Montserrado County, where there are
banking and financial institutions, but later roll-out to other counties in keeping with the CFSNS
2007 results.
11. LACE will seek the approval of its Board of Directors on targeted communities based on set
criteria.
12. LACE shall ensure that local NGOs recruit at least 30% women workforce for the project
activities, except where said quota for women can not be found.
13. LACE shall ensure prudent financial management of the funds in accordance with its OM and the
MAAFP.
14. LACE shall recruit appropriate staff and purchase required vehicles equipment and logistics for
the purpose of implementing and monitoring the project. Key staff to be recruited will be cash-
for-work Project Manager, a Monitor and three Drivers. The cash-for-work Project Manager will
report to the Executive Director, but coordinate closely with the CEP Project Manager, Deputy
Executive Director for administration, Procurement /and Finance Departments of LACE. A
Project Accountant and Procurement Officer will be recruited under the Economic Governance
and Institutional Reforms Project of the World Bank to provide support to the CfW project.
21 Operational Guidelines – Cash for Work Employment Program (CfWEP)
15. The actual implementation of the CfW activities will be done by the LNGOs that will be
recruited. (See TOR for LNGOs)
TOR for the LNGOs:
1. LACE will recruit, on a competitive basis, LNGOs for the purposes of supervising the community
projects in the counties.
2. Local NGOs will not be given cash to manage.
3. Local NGOs will do the following:
Hold discussions with the local government authorities, city mayors, clan and town chiefs,
the commissioners or superintendents if necessary; on plans to implement the project.
Create publicity on the project, increasing awareness;
Recruit beneficiary workers for the period of two months (40 working days) per project.
Supervise and direct tasks to the workers;
Local NGOs will ensure that a daily log is kept for workers;
Produce a payroll for every two weeks (workers will not get pay for the days not work for).
Payment shall be made every two weeks;
An amount of US$ 3 will be paid to workers (by the commercial bank) for each day of work
or upon completion of a daily task (one task per day). Workers are not allowed to complete
two tasks per day;
Local NGOs will be informed of the geographical location for the projects. (the county, city,
town or village), after consultation with local authority.
Local NGOs will receive fee for their services, that is US$2,350.00 per project (meaning
recruitment and supervision of 500 persons for two months);
Local NGOs will select workers on a first-come-first-serve basis, except that they must
ensure that the 30% female quota is maintained and the most vulnerable are recruited.
o Each local NGO will select a supervisor from among the beneficiary workers for each
cash-for-work project group, and he/she shall receive USD5.00 per day (proposal) for
his/her supervisory role.
o The LNGO and LACE will procure the material/tools for the community work. The
LNGO will be responsible for the security of the working tools. The supervisor shall
manage the tools, i.e., collect and store the tools at the end of each working day.
o The Local NGO will sensitize the target community, recruit workers, monitor workers
and verified attendance records.
22 Operational Guidelines – Cash for Work Employment Program (CfWEP)
o Payments of beneficiaries shall be made through the banking system, where banks exist.
Places where there are no banks, appropriate measures shall be taken by the bank staff,
the LNGOS and LACE to ensure that workers are paid.
o LNGOs will recruit only youths above the age 18.3
Ghost workers will not be tolerated, the LNGO shall be held responsible for payroll padding; will
lose contract; project suspended in that area.
Project equipment entrusted with the LNGOs to collect each day; to move on to other projects
when project A is closed. Dispose-up at the end of the second year.
Project equipment/tools used by community workers shall be part of the payment to community
workers. The tools will be given to the workers at the end of the project to be used in other
project activities that they may be engaged with. It is envisaged that every participating worker
will have a tool to take home. However, for bigger tools such as wheel barrels, some distribution
mechanism shall be established, e.g. price for the highest worker, random raffle, given to local
authorities, given to smaller team to distribute etc.
Local NGOs will draft a work plan, consultation with local authorities, community people; they
should prepare monitoring report. People should know how payment should be made.
Attendance and payment sheets/record should be kept by LACE, LNGO and supervisors.
Payments may be made by ID cards (invest in ID Card).
All beneficiaries must sign for their money in person or use their finger print to receive money.
LNGO, must have experience in community related activities, including community works,
community sensitization and mobilization; experience in Cash-for-Works will be an advantage.
3 Unless individual has received the special permission of the Ministry of Labor.
23 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Annex 3: Key points to communicate with
communities
The following is a list of topics that should be discussed with communities. There may be more topics but
this is the minimum that LACE and its Implementing Partners should ensure are properly discussed with
communities.
Clarifying the purpose of the project
Money is a one off donation in exchange for work;
This is a one off project by GOL to help the most vulnerable;
Communities should not expect to be paid for community work in future;
The project that they are to work on is a benefit to the whole community - it belongs to the
community and they must maintain it.
Discussing with the community about the use of cash Value of cash: at the most basic level it may be necessary to sensitize communities on what
money actually is, including the color and design of the notes and coins and what can be bought
for different amounts;
Inexperienced communities are vulnerable to dishonest members of community;
Information on local taxes: the chief/local government should be asked to make clear if there are
any local taxes that people are supposed to pay. Chief/elders to state in public that the money
earned belongs to that household no money should be given to anyone outside the household
unless in exchange for goods;
Discussions on investing cash or saving money (eg. methods of keeping money safe): starting a
small business, school fees, medical care, buying animals, discussions with elderly and disabled
on what they are going to do, how to avoid relatives taking and wasting the money.
General conditions of employment
Employment is for a limited number of days only; one individual cannot work more than the
specified number of days;
Workers need to be at least 18 years old.4. In case of doubt, this will be checked and the
individual will be excluded if there is a reasonable doubt;
Pregnant women are not allowed to work under the project;
Only one individual per household is allowed to work.
No insurance is provided; this includes cases of accidents, death, illness, etc.
No child care is provided; and children are not allowed on the work sites.
Payments are made every 2 weeks; payments are made in cash in USD.5
Tools and equipment provided need to be returned; otherwise deduction may be done from the
workers’ payments.
4 Unless an individual has received special permission from the Ministry of Labor
5 If necessary, payments can be made in the equivalent value in Liberian dollars. Note that in Liberia USD are used
almost interchangeably with Liberian Dollars.
24 Operational Guidelines – Cash for Work Employment Program (CfWEP)
No transport is provided.
No other benefit than the wage is provided.
Awareness about fraud Do not pay anybody to get into the project.
Do not accept to pay bribes to anybody.
Beware of money changers when changing US Dollars to Liberian Dollars when you get paid –
make sure you know the exchange rate and count your cash.
25 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Annex 4: Job description for Community Facilitator
Develop plans for the implementation of the approved project in the area. This should include
plans for material and cash needs over the course of the project, and work schedules for the
various phases of the project.
Develop and maintain good relationships and lines of communication with relevant local
authorities and communities, explaining the nature the CfWTEP and liaising with them
throughout the project.
Guarantee community involvement at all phases of the project (identification, design,
implementation, and monitoring) to ensure the development of community ownership for the
projects.
Select and establish the list of participants in collaboration with the community.
Assist in the preparation of reliable monthly cash flow projections to ensure efficient cash flow
for payments.
Ensure LACE approval on all payments before payments are made.
Implement projects as planned according to developed schedules and timelines.
Report any variations or problems with implementation of projects (in regards to costs, schedules,
technical matters) to LACE. Where necessary, regularly update project implementation plans
with associated time lines and report these changes to LACE.
Complete biweekly activity reports, and ensure that all CfW.
Cooperate and coordinate with all LACE staff to ensure good coordination.
Identify, train and supervise Group Leaders.
Ensure secure storage, tracking and reporting on all CfW equipment and supplies and the project
sites.
Provide support to Group Leaders in organizing the work and in reporting workers attendance.
Assist commercial bank officer in preparing and managing payments for project participants.
Monitors the payments done by commercial bank officers.
26 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Annex 5: Contract for workers
Name of worker: …………………………………………
Male or female: …………………………………………
Date of birth: ………….……………………………..
Implementing Partner: ..……………………………………….
Name of project: …………………………………………
Unskilled or skilled worker: …………………………………………
Number of days to be worked: …………………………………………
Days to be worked within the period: dd/mm/yy to dd/mm/yy
Daily rate:
General conditions of employment (to be read aloud to the worker):
Employment is for a limited number of days.
Workers need to be over 18 years old.6
Pregnant women are not allowed to work under the project.
No insurance is provided.
No child care is provided – and children are not allowed on the work sites.
Payments are made every 2 weeks – payments are made in cash in USD.7
All tools and equipment provided need to be returned.
No transport is provided.
No other benefit than the daily wage is provided.
Payment US$3 per day wage paid for unskilled workers; US$5 per day for skilled workers.
Date and signature of contractor:
I certify I have read aloud to the worker the conditions of the contract
…………………………………………………..
Signature of worker:
I have understood the conditions of employment and I accept them
……………………………………...
6 Unless that worker has received special permission from the Ministry of Labor
7 7 If necessary, payments can be made in the equivalent value in Liberian dollars. Note that in Liberia USD are
used almost interchangeably with Liberian Dollars
27 Operational Guidelines – Cash for Work Employment Program (CfWEP)
28 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Annex 6: Daily attendance sheet
Name
Male or
Female
Skilled or
Unskilled 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 total days worked
M S P P 2
F U
29 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Annex 7: Workers’ payroll form
Name of County:
Name of activity:
Location: Name of paying agent:
Date: Serial No.
First name
Family name
Skilled or unskilled
Nbr of days
worked
Daily Rate
Total amount
paid
Worker's signature
1 Skilled 5.00
2 Unskilled 3.00
3
4
5
6
7
8
9
10
11
12
13
14
15
30 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Annex 8: Table of indicative task rates
Table 1: Average Task Output Values
Operation Activity Minimum Task
Site Clearance Bush clearing - Dense
- Light to medium
Stripping and grubbing
Tree and stump removal
Boulder removal
Determine on site
150m² - 750m²/day
100m² - 200m²/day
Experience
200 day /km
Earth Works Slotting
Excavation to level
cut < 0,25m
> 0,25
Borrow to fill
Haulage (wheelbarrow)
0 - 20 m
40 - 60 m
80 - 100m
Spreading
4m³/day
5m³/day
4m³/day
4m³/day
13,5m³/day
8,0m³/day
5,5m³/day
12m³/day
Drainage Ditching
Sloping
Camber formation
Mitre drains
Catchwater drains
Scour checks
Culvert installation
3,75m3/day
3,75m3/day
100m²/day
3,75m3/day
3,75m3/day
25/day
max 20 days/line
31 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Gravelling Excavation
Load
Spreading
3m³/day
6m³ (loose) day
12m³/day
Source: McCutcheon (1983) and Simpson (1980).
Table 2: Detailed Task Rates For Excavation
Soil Type Tools Task rates m3/man-day
Throwing distance (m)
0-4 4-6 6-8
Loose, not sticky soil
Firm soil
Very hard soil, hard soil
mixed with stones
Shovel, jembe
Shovel, fork jembe
Pickaxe, fork jembe,
shovel
5.0-6.0
3.5-4.5
2.0-3.0
4.5-5.5
3.0-4.0
1.8-2.5
3.5-4.5
2.5-3.5
1.7-2.5
Source: de Veen (1980)
32 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Annex 9: Biweekly Project Summary
Project name and Name of Implementing Partner
Project Name:______________________________________________________________________
Total salary paid for these two weeks:________________________________________________
Village:________________________________________________________________________
District:________________________________________________________________________
County:_____________________________________________________________________
Pay Period Start:_____________________________________________________________
Pay Period End:_________________________________________________________________
Number of:
Total # Unskilled workers:__________________________________
Total # skilled workers
Total #Male workers:__________________________________
Total # Female workers:_______________________________
Male Person-days:_______________________________
Female Person-days:_____________________________
Project status:
o On Going o On Hold o Complete
Project activities:
Specific activity:___________________________________________________________________________
Specific activity:___________________________________________________________________________
Specific activity:___________________________________________________________________________
Specific activity:___________________________________________________________________________
Specific activity:___________________________________________________________________________
33 Operational Guidelines – Cash for Work Employment Program (CfWEP)
Specific activity:___________________________________________________________________________
List any Problems Encountered During these two weeks:___________________________________________
______________________________________________________________________________
______________________________________________________________________________
______________________________________________________________________________
______________________________________________________________________________
______________________________________________________________________________
______________________________
Timesheets Verified and Submitted by [Name of Logistics officer]:
Date:___________________________________________________