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4.4.1 RESULTS OF THE SURVEY 76. To implement the 147 multilateral and bilateral donors supported programs/projects and the activities of the 77 NGOs, a total of nearly 20,000 persons were paid some form of monetary incentive in 2002. The expenditure on these monetary incentives totaled around 6.7 million US dollars - representing 2.5 percent of the total expenditure in 2002 on these programs/projects. 77. As discussed earlier, the total expenditure on programs/projects for which data have been provided in response to the CBP Survey represents just over half (53.1 percent) of the total expenditures/disbursements in 2002 that have been reported by the external partners to the Council for the Development of Cambodia. There is, however, a wide variation in the response rate of various donor categories from a high of 96.3 percent in the case of UN agencies to a low of 26.3 percent in the case of bilateral donors (Table 11). TABLE 11: EXPENDITURE ON AND NUMBER OF PERSONS PAID MONETARY INCENTIVES IN 2002
78. There is also a wide variation in the amount that is paid by various categories of donors as monetary incentives. The average amount per person paid as monetary incentives in 2002 was:
79. NGOs have reported providing monetary incentives of some kind to more than 12,000 persons, of which 9,000 are associated with Village Development Committees and Commune Council staff or are Village Volunteers. Over 2,900 government staff were supported at the field level, inter alia health workers and teachers. The remaining recipients, some 200 persons or 2 per cent of the total were either National Directors, Program Managers or Technical Officers (see table 12). The majority of NGOs, fifty-two percent, supported more than 20 persons in their programs while fourteen percent supported between 10-20 persons, seven percent supported 6-10 persons and another nineteen percent supported 1-5 persons.
TABLE 12: NUMBER OF
PERSONS PAID MONETARY INCENTIVES BY FUNCTION
80. As regards multilateral and bilateral donors the total number of recipients of monetary incentives reported was some 7,600 persons , of which:
81. In the case of the UN agencies the majority of recipients of monetary incentives (nearly 60 per cent) were recorded as working at the district or local level or as field/operations staff. Also bilateral donors had nearly half of the recipients working at these levels. Only for the IFIs, AsDB and the EC were there no staff recorded at these levels. This does not exclude that for example project officers or support staff receiving monetary incentives could be working at the provincial, district or local level. It should also be noted the high proportion of staff (60 per cent) reported by the IFIs, AsDB and the EC as being support staff (see table 12). 82. Of the 224 respondents to the survey, 135 or some 60 percent have reported providing some form of monetary incentives. Of those who provided monetary incentives, some 40 per cent spent less than 10,000 US dollars, nearly 40 per cent spent between 10,000 and 50,000 US dollars, some 10 percent spent 50,001 and100,000 US dollars; and another 10 percent spent more than 100,000 US dollars (see table 13). TABLE 13: RANGE OF EXPENDITURE ON MONETARY INCENTIVES
83. In terms of the incidence of providing monetary incentives there were significant differences between the various categories of donors. A much higher proportion of programs/projects supported by the IFIs, AsDB and EC (about 90 per cent) reported providing monetary incentives in 2002 compared to bilateral donors who reported providing such incentives in only 40 per cent of their programs/projects. In the case of the UN agencies and the NGOs the proportion of programs/projects supported by monetary incentives was approximately 2/3 (Table 13). 84. Of those who reported providing monetary incentives practically all consider the payment of monetary incentives to be either critical or important to facilitate the implementation of their program/projects (Table 14). TABLE 14: SIGNIFANCE OF PROVIDING MONETARY INCENTIVES
85. Many modalities are used for providing monetary incentives to the staff of collaborating institutions. In addition to straight salary supplements, these include: payments for special tasks, daily subsistence allowances (DSA) and per diems, overtime payments, allowance for attending workshops and seminars, and other forms of unspecified monetary incentives. It should be noted that on a given program/project, the monetary incentives paid can and often do, as the survey data indicate, include a mix of different modalities. 86. Overall, among the 135 multilateral and bilateral programs/projects and NGOs (out of a total of 224 respondents) who reported that they were paying monetary incentives (see table 15):
TABLE 15: TYPE OF MONETARY INCENTIVE PROVIDED1
87. The data collected through the CBP Survey on monetary incentives indicate that in many instances a staff member may be receiving more than one type of monetary incentives, for example, a mix of salary supplement and DSA, or salary supplement and per diem. It is therefore not possible to tabulate directly from the survey data a breakdown of the total expenditure on monetary incentives for each of the seven modalities. However, these data do provide information on the number of persons who were paid salary supplements and information on either the amount of supplement or the range of supplement payments that was made in 2002. Based on these data a rough estimate of the costs of salary supplements can be made by multiplying the reported monthly payments (the monthly rate or by using the mid point of the range of monthly payments reported) by the number of persons receiving the salary supplement. An application of this methodology yields a rough estimate of total expenditure on salary supplements by the 147 multilateral and bilateral programs/projects of around 4.5 million US dollars - out of a total expenditure of around 5.3 million US dollars on all different types of monetary incentives. In the case of NGOs, the total expenditure on providing salary supplements is estimated be around 925,000 US dollars.
TABLE 16: ESTIMATED
EXPENDITURE ON SALARY SUPPLEMENTS ON MULTILATERAL
88. When looking at the figures in table 16 it should be recalled that the overall response rate to the CBP survey only covered only about half of total disbursements in 2002 that have been reported to CDC by external partners, and that the response rate was particularly low for bilateral donors. Furthermore, only 135 out of 224 respondents to the CBP survey reported paying monetary incentives. 89. As mentioned earlier, nearly 20,000 persons were paid some type of monetary incentive in 2002 by the 135 donor and NGO supported programs that provided these incentives. More than 60 percent of those receiving a salary supplement are supported by NGOs. Another one-third was supported by multilaterally financed programs/projects (Table 17). TABLE 17: NUMBER OF STAFF RECEIVING SALARY SUPPLEMENTS
90. Although a large number of persons were paid some form of monetary, less than one-quarter of these have been reported to have been paid the so called “salary supplement”. In the case of NGOs, the proportion that was paid “salary supplement” was less than 8 percent. Also, the reported number of persons paid salary supplements by the programs/projects supported by IFIs, ADB and EC as well as by the bilateral donors is significantly lower than UN agencies. However, it should be noted that this could be in part attributable to lower response rates of these donor groups to the CBP Survey and/or the nature of their programs/projects. On the other hand, the data reported for the programs/projects supported by IFIs, ADB, and EC and the bilateral donors have a much higher proportion of staff that were paid salary supplements as compared to other forms of monetary incentives. In the case of IFIs, ADB and EC, the proportion who are paid salary supplements is 92.8 percent of those who were paid any form of monetary incentive. In the case of bilateral donors this proportion is 85.2 percent. 91. NGOs have reported the largest number of persons who are paid some form of monetary incentives. By far the most common forms of monetary incentives provided were per diems and allowances for attending training activities, workshops and seminars. In fact over 85 percent of the NGOs reported that they provided either per diems or allowances or both and another 30 percent gave payments for special tasks. Monthly payments, whether salary supplements, per diems or allowances by NGOs, were for the most part less than US $100. 92. Some multilateral development partners and the MEF have established guidelines on the payment of salary supplements. However, the practices on the payment of salary supplements to staff of collaborating institutions acting as counterparts to the donors – also called “topping up” - is very different among the various categories of donors. The UN system has a salary supplement scale codified in a Memorandum of Understanding between all UN agencies. AUSaid applies the same scale. The representative of the IMF indicated that they also use the UN scale. The Ministry of Economy and Finance has a scale, somewhat higher than the UN scale, which it applies to counterparts in projects funded by the World Bank and the Asian Development Bank. As these institutions prohibit the payments of salary supplements to government officials, these supplements technically are paid out of Cambodian counterpart funds. TABLE 18: GUIDELINES ON MONTHLY RATE OF SALARY SUPPLEMENTS(in US dollars )
93. The approved salary supplement levels for the UN agencies, the MEF and the proposed PMG scale are summarized in Table 18. As can be seen the UN scale is higher than the proposed Priority Mission Group (PMG) salary supplements. The UN Resident Coordinator, however, has indicated that the UN community should consider lowering their salary supplements to the PMG level in order to create a more “level playing field”. Whether this can be done in practice is debatable given the competition for good counterparts. The MEF scale for salary supplements is higher than both the UN scale and the proposed PMG scale. 94. The data on the amount of salary supplement paid the number of persons receiving the payment, as reported in the CBP Survey, is summarized in Table 19. These data show that except for five individuals out of 2,492, the salary supplements paid by the UN agencies are within their guidelines, that is, below US$ 180 per month. Of the five persons who are paid more than US$ 180 per month, two were paid between US$ 180 and 250, two between US$ 300 & 400, and one between US$ 400 and 500.
TABLE 19: NUMBER OF
PERSONS PAID MONTHLY SALARY PAYMENTS
95. In the case of IFIs, ADB and EC, 132 individuals out of 802 were paid salary supplements above the MEF ceiling of US$ 250 per month. Of these 132 individuals , the majority, 114, were paid between US$ 250 to 400, 14 were paid between US$ 400-600, 2 between US$ 600-800, and 2 over US$ 1,000 per month. 96. While the bilateral donors have no established guidelines, only 37 out of 518 individuals were paid more than US$ 250 per month. Of these 37, the majority 29 were paid between US$ 250 to 400, 4 were paid between US$ 400-500, 3 between US$ 700-800, and 1 between US$ 800-900 per month. 97. In the case of NGOs, the majority of individuals receiving salary supplements (59.6 percent) were paid less than $ 80 per month. 98. Within the sample of reported multilateral and bilateral programs/projects, there were 577 individuals who were paid monthly salary supplement above the ceiling of US$ 150 per month established for the proposed PMG program. 99. There is wide variation in the amount of salary supplements paid in the implementation of the programs/projects supported by multilateral and bilateral donors to various categories of counterpart personnel (Table 20). These differences are most pronounced in the case of salary supplements paid to staff of collaborating institutions who were designated as Program Directors, Managers or Coordinators. The payments made by UN agencies in 2002 to the 73 individuals performing these functions on their programs/projects were in the 100-450 US dollar per month range. The bilateral donors supported programs/projects paid between 130-850 US dollars per month to 24 individuals performing the same functions. The IFIs, ADB and EC supported programs/projects paid between 120 and 1500 US dollars per months to 33 individuals performing the same function. With few exceptions the IFIs, ADB and EC paid the largest amounts, followed by bilateral donors, and the UN agencies. |
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