Tajikistan: Strengthening Public Resource Management Program

Sovereign Project | 44061-012 Status: Closed


ADB is helping Tajikistan strengthen social protection spending programs and public financial management. The project will support two pilot social safety net programs: an electronic card-based pension payment system and targeted social assistance to poor households. It will also help modernize and improve tax policy and administration, and increase transparency in public financial management.

Latest Project Documents

Project Data Sheets (PDS) contain summary information on the project or program. Because the PDS is a work in progress, some information may not be included in its initial version but will be added as it becomes available. Information about proposed projects is tentative and indicative.

The Public Communications Policy (PCP) recognizes that transparency and accountability are essential to development effectiveness. It establishes the disclosure requirements for documents and information ADB produces or requires to be produced.

The Accountability Mechanism provides a forum where people adversely affected by ADB-assisted projects can voice and seek solutions to their problems and report alleged noncompliance of ADB's operational policies and procedures.

In preparing any country program or strategy, financing any project, or by making any designation of, or reference to, a particular territory or geographic area in this document, the Asian Development Bank does not intend to make any judgments as to the legal or other status of any territory or area.

Project Name Strengthening Public Resource Management Program
Project Number 44061-012
Country Tajikistan
Project Status Closed
Project Type / Modality of Assistance Grant
Technical Assistance
Source of Funding / Amount
Grant 0251-TAJ: Strengthening Public Resource Management Program
Asian Development Fund US$ 45.00 million
TA 7801-TAJ: Strengthening Public Resource Management Program
Technical Assistance Special Fund US$ 600,000.00
Republic of Korea e-Asia and Knowledge Partnership Fund US$ 500,000.00
Strategic Agendas Inclusive economic growth
Drivers of Change Governance and capacity development
Sector / Subsector

Public sector management - Public administration - Public expenditure and fiscal management - Social protection initiatives

Gender Equity and Mainstreaming Effective gender mainstreaming
Project Rationale and Linkage to Country/Regional Strategy

Project Outcome

Description of Outcome
Progress Toward Outcome The program results have improved public resource management capacity in Tajikistan. Tajikistan achieved robust economic growth of 7.5% in 2012. Slightly above the 7.4% recorded in 2011, the gain was mainly due to strong growth in remittances and ensuing private consumption. Services, particularly retail trade, remained the key driver of economic growth (expanding by 14.5%). Construction, industry, and agriculture also grew but at a slower pace. Industry expanded by 10.4%, backed by continued growth in mining and light processing. Textiles grew by 30%, as weak external demand and lower international prices for cotton prompted firms to focus on local processing. Fiscal policy tightened in 2012, leaving an overall budget surplus (including all investment spending) of 0.1% of gross domestic product (GDP) that reversed the 2.5% deficit in 2011 (Table 1). The state budget surplus, which excludes foreign-financed investment, rose to 1.8% of GDP from 0.5% in 2011. Revenue performance was on track, reflecting a 22.6% rise in tax revenue and a more than 7.3% increase in nontax revenue as the restructuring of the Tax Committee and better tax administration improved collections. Total expenditure rose by 21.9%, reflecting a 21% increase in spending for social protection. Pensions increased by 30% and social sector wages by 30% 40%, reflecting the government's commitment to improve social services. However, infrastructure spending fell by 10.1% following the completion of projects commissioned to celebrate Tajikistan's 20 years of independence. Public investment including outlays by state enterprises also declined, as investment in energy, transport, and communication fell by 20.2% due to limitations imposed on new projects. Overall, more than half of budgetary spending in 2012 targeted social sectors. The two pilot initiatives in social protection have been implemented as planned and independent evaluation shows that the prospects for better use of public resources in the sector are promising due to better targeting of the poor, improved transparency, and reduced transactions costs. The government's internal audit system has been strengthened. The new internal audit units in several government bodies are now conducting technical audits to ensure the efficient use of public resources. Procedures and instructions have been developed to align the medium-term expenditure framework with the annual budget. After succesful completion of agreed actions, the second (and last) tranche of $13,000,000 was released on 4 October 2013.
Implementation Progress
Description of Project Outputs
Status of Implementation Progress (Outputs, Activities, and Issues)

1. Selected aspects of tax policy and administration improved:

Tax reforms have remained a high priority area for the government and an important foundation for achieving the country's development goals of reducing poverty and ensuring growth. In line with program objectives, the government's fiscal capacity has continued to expand. With the exception of 2009 during the global financial crisis, the ratio of tax revenues to GDP has grown steadily since 2006. The ratio of tax to GDP increased from 19.4% in 2011 to 21.1% in 2012. During the program period the Tax Committee has shown strong commitment to reforming tax policy and administration. The key improvements include to (i) organizationally restructure the Tax Committee along functional lines, (ii) create a reform and donor coordination division to streamline communication with development partners, (iii) introduce an electronic tax filing (e filing) system for all taxpayers, (iv) prepare an information technology strategy, (v) improve tax policy and the valued-added tax (VAT) regime, (vi) expand the Large Taxpayers Inspectorate to include additional corporate entities, and, (vii) reduce the number of taxes from 21 to 10 with a new tax code approved by the Parliament in September 2012.

2. Social safety net pilots designed, implemented, and evaluated by the Ministry of Labor and Social Protection:

The program supported two initiatives from the Ministry of Labor and Social Protection of the Population (MLSPP) aimed at improving the effectiveness, efficiency, and accountability of public expenditure in social protection. These were (i) the new electronic card-based pension payment system, and (ii) the new targeted social assistance (TSA). The initiatives fundamentally change the pension payment system and targeting of social assistance programs. Since 2009, the state-owned Amonatbank and the State Agency for Social Insurance and Pensions, under the coordination of MLSPP, have introduced noncash mechanisms for payment of pensions. The new system places pensions into special individual bank accounts and enables pensioners to withdraw these from ATMs and POS terminals using plastic bank cards. The system has been gradually implemented and now serves 206,000 pensioners (one-third of the total number of pensioners). The TSA initiative has been in place since 2011. The TSA benefit is unconditionally allocated to poor households based on proxy means-testing. ADB provided critical interim support to the pilots in Istaravshan (Sugd region) and Yovon (Khatlon region) by improving MLSPP's business processes and developing and implementing a new management information system. In 2011, more than 19,000 households applied for TSA. Of these, 10,265 households were eligible and received TSA (4,820 in Yovon and 5,445 in Istaravshan). Totals of TJS3.80 million ($0.83 million) and TJS 4.15 million ($0.91 million) respectively were paid in TSA subsidies in 2011 and 2012. The government is rolling out the TSA initiative to 10 new districts (including Khujand and Kurgonteppa).

3. Selected aspects of public financial management improved:

The program required implementation of a new law on internal audit in the public sector enacted in 2010, as well as enactment and implementation of a new law on public finance to unify the medium-term expenditure framework with the annual budget process. Internal audit units were established in several government bodies, including the Ministry of Finance (MOF), MLSPP, Ministry of Health, Ministry of Education, Ministry of Transport, and the Tax Committee. The internal audit units regularly conduct technical audits of the relevant government entities. The internal audit system has completed a full budget cycle and the internal audit units have submitted 2011 annual reports to the MOF using the approved template. The medium-term action plan for implementation of the new internal audit system in the government foresees a gradual migration (by 2015 2016) from a comprehensive audit approach to a risk-based audit approach. The government also made progress in public financial management reforms in 2012. Clear procedures and instructions (including a budget call circular) have been developed by MOF. These procedures integrate the medium-term expenditure framework with the annual budget process, increasing the transparency and control of public finances. A new public expenditure and financial accountability assessment was prepared in 2012. Areas requiring further support and progress include accounting standards and external audit.

Geographical Location Tajikistan

Safeguard Categories

Environment C
Involuntary Resettlement C
Indigenous Peoples C

Summary of Environmental and Social Aspects

Environmental Aspects C
Involuntary Resettlement C
Indigenous Peoples C
Stakeholder Communication, Participation, and Consultation
During Project Design Consultations were held with the President's office; Ministry of Finance; Ministry of Education; Ministry of Health; Tax Committee; Agency for Financial Control and Combating Corruption; National Committee of Women and Family Affairs; State Agency for Social Insurance and Pensions; UNICEF; WHO; European Commission; IMF; IFC; USAID; World Bank; health professionals and women's groups and pensioners.
During Project Implementation

Regular and extensive discussions with the EA and IAs as well as other relevant agencies (IMF, WB, EU) on the reforms under the program and the TA.

As of 25 September 2014:

The program was closed on 4 September 2014 after submission of audited project financial statements (APFS).

Business Opportunities

Consulting Services

The MOF is the executing agency for the TA. MOF, the MOLSP and the Tax Committee are the implementing agencies.

Six national individual consultants and two international individual consultants were recruited under the TA. All the contracts have been completed. Two consulting firms have been recruited; one is PDP Australia, it supported the Tax Committee in implementing agreed reform actions for the incentive and second tranche conditions and another one is Zerkalo, a survey firm, it was recruited to provide relevant data to conduct an independent evaluation of the impact of the initiative to pay pensions through individual bank accounts being implemented in selected areas of Tajikistan.

An international editor has been recruited (Feb 2013) to edit the evaluation report on pension payments produced by Zerkalo.

Update as of 24 Mar 2014:

All consultants had been engaged (firm and individual). All contracts closed and TA project was financially closed in December 2013.


The following equipment were procured under the TA: ASA 5510 appliance with SW, 5FE, 3 DES/AES (server), DELL PowereRdge R510 (firewall), Inverter Tripplite, and internet connection. Total amount TJS42,308

Update as of 24 Mar 2014:

All equipment procured under the TA were turned oover to the EA after completion in Dec 2013.

Responsible Staff

Responsible ADB Officer Michiel Van der Auwera
Responsible ADB Department Central and West Asia Department
Responsible ADB Division Public Management, Financial Sector and Trade Division, CWRD
Executing Agencies
Ministry of Finance
3, Academic Rajabovs


Concept Clearance 21 Jan 2011
Fact Finding 22 Sep 2010 to 01 Oct 2010
MRM 10 Feb 2011
Approval -
Last Review Mission -
Last PDS Update 26 Sep 2014

Grant 0251-TAJ

Approval Signing Date Effectivity Date Closing
Original Revised Actual
12 Apr 2011 13 Apr 2011 26 Apr 2011 30 Apr 2013 31 Oct 2013 04 Sep 2014
Financing Plan Grant Utilization
Total (Amount in US$ million) Date ADB Others Net Percentage
Project Cost 45.00 Cumulative Contract Awards
ADB 45.00 12 Apr 2011 45.00 0.00 100%
Counterpart 0.00 Cumulative Disbursements
Cofinancing 0.00 12 Apr 2011 45.00 0.00 100%
Status of Covenants
Category Sector Safeguards Social Financial Economic Others
Rating - - - Satisfactory - -

TA 7801-TAJ

Approval Signing Date Effectivity Date Closing
Original Revised Actual
12 Apr 2011 05 May 2011 05 May 2011 31 May 2013 15 Aug 2013 -
Financing Plan/TA Utilization Cumulative Disbursements
ADB Cofinancing Counterpart Total Date Amount
Gov Beneficiaries Project Sponsor Others
600,000.00 500,000.00 25,000.00 0.00 0.00 0.00 1,125,000.00 12 Apr 2011 1,094,406.28
Status of Covenants
Category Sector Safeguards Social Financial Economic Others
Rating - - - Unsatisfactory - -

Safeguard Documents See also: Safeguards

Safeguard documents provided at the time of project/facility approval may also be found in the list of linked documents provided with the Report and Recommendation of the President.

None currently available.

Evaluation Documents See also: Independent Evaluation

None currently available.

Related Publications

None currently available.

The Public Communications Policy (PCP) establishes the disclosure requirements for documents and information ADB produces or requires to be produced in its operations to facilitate stakeholder participation in ADB's decision-making. For more information, refer to the Safeguard Policy Statement, Operations Manual F1, and Operations Manual L3.

Requests for information may also be directed to the InfoUnit.