2024-12-16-世界银行-多阶段程序化方法的早期评估（英）_95页_6mb

报告摘要

Early-Stage Evaluation of the Multiphase Programmatic Approach Summary

Overview

The World Bank introduced the Multiphase Programmatic Approach (MPA) in 2017 to support long-term, large-scale, or complex engagements through a series of shorter, linked projects or phases. The MPA can be structured in either vertical (within a single country) or horizontal (across multiple countries or regions) forms, typically spanning 8–10 years. It is designed to align with the Program Development Objective (PrDO) and to support scalable or modular activities, such as phased infrastructure investments or predictable development courses.

The MPA was introduced with the following objectives:

Enhance coherence by aligning with broader country, sector, and institutional strategies.
Ensure continuity through long-term support and flexibility in phase timing.
Promote learning via explicit learning plans and feedback mechanisms.
Enable adaptation by incorporating multiple opportunities for reflection and course correction.

Core Content

The MPA is a flexible and adaptive financing mechanism that allows for phased implementation, external partnerships, and internal collaboration. It is intended to support climate-related objectives and institutional development more effectively than traditional approaches.

Main Findings

Learning and Continuity: The MPA has met expectations in terms of learning and continuity. Most MPAs have strong learning agendas, and lessons learned have informed follow-up phases. Support has been continuous for vertical MPAs that have moved beyond the first phase, and both vertical and horizontal MPAs offer flexibility in timing.
Coherence and Adaptation: The MPA has not significantly outperformed alternatives in coherence and adaptation. There is no clear evidence that MPAs are more tightly anchored in Country Partnership Frameworks (CPF) or that they offer more adaptability in response to changing circumstances. However, the phased design allows for adaptive learning and feedback.
Operational Benefits: The MPA reduces undisbursed balances and commitment fees, and may support external financing and collaboration with other lenders and institutions.
Complexity and Speed: While MPAs can deliver at scale and speed, especially in emergency contexts, this is not guaranteed. Increased complexity may slow implementation if speed and replicability are key objectives.

Implications for Management

Coherence: MPA objectives should be clearly aligned with Country Partnership Frameworks (CPF), and the long-term focus of MPAs should be emphasized. Political consensus and regional platforms can support implementation.
Continuity: MPA prioritization in CPFs should be considered, particularly in IDA-eligible countries with uncertain funding. Flexibility in choosing between vertical and horizontal MPAs is important.
Learning: Learning agendas need to be tailored, adequately resourced, and monitored. They should be designed to capture learning moments and support institutional development.
Adaptation: The phased design of MPAs allows for continuous adaptation, but the evaluation does not fully capture this due to limited restructuring data. Operational teams also adapt through real-time learning.
Training and Networking: Task Team Leaders (TTLs) require dedicated training and networking opportunities to manage the complexities of MPAs, especially those involving multi-sector and multi-country coordination.

Key Information

Portfolio Growth: As of December 2023, the MPA portfolio includes 11 horizontal and 29 vertical MPAs, with a total of $46.8 billion approved under the MPA (including $18 billion under the COVID-19 response).
Geographic Focus: Most nonemergency MPA financing targets IDA-eligible countries, particularly in Africa (75% of nonemergency financing) and fragile and conflict-affected countries (20%).
Sectoral Focus: MPAs primarily support infrastructure, sustainable development, energy, agriculture, water, and transport.
Global Challenge Programs: The MPA is seen as a potential tool to support the eight Global Challenge Programs, with a focus on knowledge, partnerships, and operational efficiency.

Evaluation Scope

The evaluation does not:

Assess the suitability of MPAs where they have not been applied.
Evaluate the efficiency of MPA implementation.
Judge whether the policy scope or delegation of authority should be expanded.
Analyze the uptake of MPAs or the performance of MPAs in terms of outcomes.

Instead, it focuses on:

Whether the MPA meets expectations on design, functioning, and enabling environment.
Whether the claims made in the Operations Policy and Country Services (OPCS) technical briefing on processing times are valid.
Whether the enabling environment (both within the World Bank and on the client side) supports the MPA as intended.

Conclusion

The MPA is a promising approach that supports learning, continuity, and adaptation in long-term development projects. However, it has not yet fully demonstrated its coherence and adaptation advantages compared to traditional methods. The evaluation highlights the need for better communication, training, and alignment with CPFs to enhance the MPA's effectiveness. The approach is particularly valuable in complex and multi-faceted development contexts, and its phased design allows for incremental learning and adjustment. The World Bank Management acknowledges the findings and is committed to improving TTL selection, learning agendas, and client communication to better support the MPA's goals.