Issues in Development Management in Sub-Saharan...

hm* Economic Development Institute F3'0"09 of The World Bank

EDI-1 9

Issues in DevelopmentManagement inSub-Saharan Africa

Ladipo Adamolekun

AN EDI POLICY SEMINAR REPORT * NUMBER 19

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Policy Seminar Reports numbers 1 through 7 are 9 TransportPolicyIssues inSub-Saharanavailable from the Economic Development Insti- Africa. Hernan Levy and Patrick 0.tute of the World Bank, 1818 H Street, N.W., Malone.Washington, D.C. 20433, attention: Ms. Edith 10 Politicas de Transporte en Am&icaPena. Latina. Hernan Levy.

1 Transport Policies inFrancophone Sub- 11 Managing Financial Adjustment inSaharan Africa: Issues and Options. Middle-Income Countries. Alan Roe andHernan Levy. EDI Catalog no. 705/016. Paul A. Popiel.

IF Les politiques de transport en Afrique 12 FinancingHigher Education inFranco-francophone au sud du Sahara: phone WestAfrica. Angela RansomProblemes et choix. Hernan Levy. EDICatalog no. 705/016. 13 The Role of Community Participation in

Development Planning and Project2 Food Policy Seminar. J. Price Gittinger. Management. Michael Bamberger.

EDI Catalog no. 505/003.14 Korea's Experience with the Develop-

3 Agricultural Policy and Its Relationship ment of Trade and Industry: Lessons forto Food Policy in Sub-Saharan Africa. LatinAmerica. SilviodeFranco,AlbertoSakwa Bunyasi. EDI Catalog no. 070/ Eguren, and David Baughman. Also in001. Spanish.

3F Lapolitique agricole et ses rapports avec 15 EconomicAdjustment in Algeria, Egypt,la politique alimentaire en Afrique Jordan, Morocco, Pakistan, Tunisia,subsaharienne. Sakwa Bunyasi. EDI and Turkey. Alan Roe and Jayanta Roy.Catalog no. 070/001.

16 Trade Reform and ExternalDevelopmentPolicyAnalysis. David G. Adjustment: The Experiences ofDavies. EDI Catalog no. 420/043. Hungary, Poland, Portugal, Turkey,

5 Management Training and Research for and Yugoslavia. Alan Roe, Jayanta Roy,African Deuelopment. J. Price and Jayshree Sengupta.Gittinger. EDI Catalog no. 430/008. 17 Como Recuperar el Progreso Social en

SF La formation et la recherche en gestion America Latina. Enrique de la Piedra.pour le deeloppement de lAfrique . J. 18 Structural Adjustment in Sub-SaharanPrice Gittinger. EDI Catalog no. 430/ Africa. Cadman Atta Mills. Also in008. French.

6 Land and Water Resources 19 Issues in Development Management inManagement. Jacques J. Kozub, Sub-Saharan Africa. LadipoNorman Meyers, and Emmanuel Adamolekun. Also in French.D'Silva. EDI Catalog no. 070/003.

7 Export Policies and Administration.Randi B. Greenblatt with Joaquin A.Cottani and Domingo F. Cavallo. EDICatalog no. 400/047.

The following titles may be purchased from thePublication Sales Unit, World Bank, 1818 HStreet, N.W., Washington, D.C. 20433.

8 The Political Economy ofReform in Sub-Saharan Africa. Ravi Gulhati.

AN EDI POLICY SEMINAR REPORT * No. 19

Issues in Development Managementin Sub-Saharan Africa

Ladipo Adamolekun

The World BankWashington, D.C.

Copyright © 1989The International Bank for Reconstruction and Development / THE WORLD BANK1818 H Street, N.W.Washington, D.C. 20433, U.S.A.

All rights reservedManufactured in the United States of AmericaFirst printing October 1989

The Economic Development Institute (EDI) was established by the World Bank in 1955 to train officialsconcerned with development planning, policymaking, investment analysis, and project implementation inmember developing countries. At present the substance of the EDI's work emphasizes macroeconomic andsectoral economic policy analysis. Through a variety of courses, seminars, and workshops, most of which aregiven overseas in cooperation with local institutions, the EDI seeks to sharpen analytical skills used in policyanalysis and to broaden understanding of the experience of individual countries with economic development.In addition to furthering the EDI's pedagogical objectives, Policy Seminars provide forums for policymakers,academics, and Bank staff to exchangeviews on currentdevelopmentissues,proposals, andpractices. Althoughthe EDI's publications are designed to support its training activities, many are of interest to a much broaderaudience. EDI materials, including any findings, interpretations, and conclusions, are entirely those of theauthors and should not be attributed in any manner to the World Bank, to its affiliated organizations, or tomembers of its Board of Executive Directors or the countries they represent.

Because of the informality of this series and to make the publication available with the least possible delay,the typescript has not been prepared and edited as fully as would be the case with a more formal document, andthe World Bank accepts no responsibility for errors.

The material in this publication is copyrighted. Requests for permission to reproduce portions of it shouldbe sent to Director, Publications Department, at the address shown in the copyright notice above. The WorldBank encourages dissemination of its work and will normally give permission promptly and, when thereproduction is for noncommercial purposes, without asking a fee. Permission to photocopy portions forclassroom use is not required, though notification of such use having been made will be appreciated.

The backlist of publications by the World Bank is shown in the annual Index of Publications, which isavailable from Publications Sales Unit, The World Bank, 1818 H Street, N.W., Washington, D.C. 20433,U.S.A., or from Publications, Banque mondiale, 66, avenue d'Iena, 75116 Paris, France.

Ladipo Adamolekun is senior public sector management specialist in the Coordination and DevelopmentAdministration Division of the Economic Development Institute, the World Bank.

Library of Congress Cataloging-in-Publication Data

Adamolekun, Ladipo.Issues in development management in sub-Saharan Africa I Ladipo

Adamolekun.p. cm. - (An EDI policy seminar report; no. 19)

Includes bibliographical references.ISBN 0-8213-1338-X1. Economic development projects-Africa, Sub-Saharan-Management.

2. Civil service-Africa. Sub-Saharan-Labor productivity.3. Policy sciences-Study and teaching-Africa, Sub-Saharan.4. Central-local government relations-Africa, Sub-Saharan.I. Title. II. Series.HC800.Z9E443 1989338.967-dc2O 89-22611

CIP

EDI Catalog No. 075/006

Foreword

This book is one of a series reporting on policy seminars organized by the EconomicDevelopment Institute of the World Bank. Policy seminars provide a forum for an informalexchange of ideas and experiences among policymakers from different countries, leading experts indevelopment, and World Bank staff with respect to major issues of development policy.

Policy Seminar Reports focus on issues raised during seminars that may be of interest to a wideraudience. They are not intended to be comprehensive proceedings. However, they seek to conveythe essence of the discussions that took place and to bring out any principal areas of agreement ordisagreement that emerged among those participating.

Christopher R. WilloughbyDirectorEconomic Development Instituteof The World Bank

iii

Contents

Summary vii

1. Introduction and Background 1

2. The Key Issues 4

Civil Service Improvement 5Capacity Building for Policy Analysis 8Coordination and Implementation of National Development Policies 10

On the Context and Styles of Policymaking 10Redefinition of the Role of the State 11Coordination and lmplementation of DevelopmentPolicies 11

3. Future Directions in the Field of Development Management 14

Strengthening Institutional Capacity 14Understanding the Political Context of Development Management 14Civil Service Improvement *5Training: Strategies, Institutions, and Materials 15

What Role for EDI? 16Conduct of Direct Training Programs 16Development of Training Institutions 16

Postscript 17

AnnexesA. List of Participants 21B. Seminar Programs 35C. Follow-up Actions Recommended

by Country Participant Teams 45D. Background Reading Materials 47

v

Summary

The Coordination and Development Administration Division of the Economic DevelopmentInstitute organized a series of four senior policy seminars and a workshop on developmentmanagement between November 1986 and December 1988. The aim of the seminars was topromote the exchange of ideas and experiences among senior African policymakers on the broadtheme of institutional reforms for strengthening development management. After four seminarsorganized jointly with three partner institutions, the Economic Commission for Africa (ECA), theNigerian Institute of Social and Economic Research (NISER), and the Public AdministrationPromotion Centre of the German Foundation for International Development (ZOV/DSE), a wrap-upworkshop was organized in December 1988 in partnership with ZOV/DSE to discuss the draftreport on the seminar series and to examine the implications of the findings and conclusions of theseminars for future work in the field of development management, including the role to be playedby EDI. In all, 85 participants from 30 Sub-Saharan African (SSA) countries attended the seminarsand workshop.

The discussions at the seminars and workshop revealed that senior African policymakersinterpreted development management in a broad sense to include the strengthening, expansion, andadaptation of not only the institutions usually associated with the machinery of government-government ministries, departments, other executive agencies, public enterprises, and decentralized(subnational) government units-but also the judicial and party systems as well as non-governmental organizations (including community associations and consumer associations),professional associations, and private sector institutions (private enterprises and chambers ofcommerce). Although the discussions at the seminars and workshop covered this rather wide rangeof elements of institutional development, participants were essentially concerned with the followingfour specific issues: (a) civil service improvement, (b) capacity building for policy analysis, (c)coordination and implementation of national development policies, and (d) training. The majorpoints from the findings and conclusions in respect of each theme are as follows:

(a) Civil Service Improvement: Acknowledgment of the progressive decline of the civil serviceinstitutions in the different SSA countries was followed by a broad agreement on the needto arrest their deterioration and take measures to improve their performance. The majorissues of concern raised were staff reduction and growth control, including census of civilservants; salary and compensation policies; professionalization of civil service structure andpersonnel; and training. It was generally agreed that the overall objective of theimprovement measures to be introduced in these four areas (and other related efforts)should be the achievement of increased productivity and efficiency. To assist in the designand implementation of the desirable improvement measures, it was recommended that somestudies should be conducted with a view to obtaining a deep understanding of the issuesinvolved in each problem area.

(b) Capacity Building for Policy Analysis: It was agreed that each country should seek todevelop indigenous capacity in policy analysis within the governmental bureaucracythrough the establishment of policy analysis, planning, and research units. In addition,governments should encourage contributions from nongovernmental "think tanks" to policyanalysis capacity building and take measures to develop and strengthen the policy analysiscapacity of universities, research institutes, and central banks. It was also agreed that theidea of high-level seminars, workshops, and conferences for both political and

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viii Development Management in Sub-Saharan Africa

administrative leaders should be maintained and expanded. To this end, it was suggestedthat universities and management training institutions should start to incorporate formaltraining in policy analysis in their curricula where this is not already the case.(c) Coordination and Implementation of National Development Policies: Emphasis wasput on the importance of three types of coordination: within central government ministriesand agencies, between central government and subnational governments, and betweengovernment as a whole and the private sector, including nongovernmental organizations.With regard to the relationship between planning and finance, it was agreed that effortsshould be made to spell out as clearly as possible the respective roles of planning andfinance ministries/departments and the central banks as well as the relationships betweenthese core coordinating organs and the technical ministries. The objective should be toreduce, if not eliminate, the conflict, tension, and ambiguity that commonly characterize theexisting institutional arrangements for coordinating these two vital functions. It was alsorecommended that governments should accord high priority to coordination between publicand private sectors by seeking to establish clear guidelines on the desirable frontier betweenthe two sectors after extensive consultations with all the relevant economic interests withinthe society.

(d) Training: Recommendations on training covered training strategy, training institutions, andtraining materials. It was recommended that each country should articulate a trainingstrategy consisting of a national training policy which spells out the state's responsibilityfor the provision of training and the rights and obligations of every state functionary toattend training programs. It was also recommended that the conduct of a training needsassessment for the personnel of public sector institutions should be accorded the highestpriority in each country in implementing the training policy. Regarding training institutions,it was recommended that evaluation of existing institutions should be conducted with aview to taking appropriate measures aimed at strengthening them to ensure improvedperformance. And on training materials, it was recommended that strong emphasis shouldbe put on the production of materials that would be relevant to the realities in SSAcountries.

Regarding future work in the field of development management, it was suggested that effortsshould be concentrated essentially on fonmulating and implementing a strategy aimed at developingself-reliant and self-sustaining institutions for the achievement of economic and social developmentin SSA countries. According to the participants, key elements of such a strategy would includepolitical institutions and processes, civil service reform, public enterprise reform, capacity buildingfor policy analysis, decentralized and community-level institutions and processes, coordinationmechanisms and processes, information management systems, management of external resources,and training.

EDI will take full account of these needs in its work program on public/private sectormanagement. Proposed activities have two main thrusts: (a) conduct of direct training activities and(b) development of training institutions. The training activities will focus on the reform of publicservice, improved management of public expenditures, public enterprise management, andmanagement of decentralized and local-level institutions. With regard to training institutions, EDIwill operate mainly through the ongoing UNDP-EDI-ILO (UNEDIL) project (launched in 1987),which seeks to strengthen about 14 selected training institutions in SSA countries. The overall aimis to assist the institutions to develop self-reliance, thereby enabling them to play a key role onissues of institutional reform and policy management thomughout SSA.

Introduction and Background

This report synthesizes the key issues discussed in the series of four seminars and a wrap-upworkshop on Development Management organized by the Coordination and DevelopmentAdministration Division of the Economic Development Institute between November 1986 andDecember 1988. The report is in three parts. The introduction is devoted to a brief account of thebackground to the seminar series covering such items as location, duration, participants, and partnerinstitutions. In the second part, which constitutes the core of the report, the discussions of the keyissues identified by seminar participants as the central concerns in Development Management arereviewed in some detail with particular attention to the major findings and conclusions. The thirdpart is devoted to a discussion of the implications of the major findings and conclusions of theseminars for future work in the field of development management, including the role to be playedby EDI.

Given the interest expressed by both the country participant teams and the partner institutionsinvolved in organizing the seminars in the report that EDI had undertaken to prepare on the seminarseries, it was agreed at the end of the third seminar that a wrap-up workshop would be organized inDecember 1988 to discuss the draft of the report before its eventual publication. The third part ofthis report is based largely on the outcome of the discussions at the workshop. And this finalversion of the full report takes into account the views, comments, and suggestions of the workshopparticipants.1

In June 1985, EDI organized a workshop whose objective was to assist the Coordination andDevelopment Administration Division (EDICD) in developing a strategy that would guide its workin the field of Development Management. Subsequently, EDICD adopted a strategy of interventionwith the following specific objectives: (i) increase the capacity of member countries to analyze anddesign the institutions needed to achieve development goals; (ii) provide a forum for discussion ofpolicy and managerial alternatives leading to performance improvement in public agencies; and (iii)assist selected specialized training institutions in improving their curricula and in the training oftrainers.

One of the priority actions taken by the Division was to organize senior policy seminars (SPS)focused on critical problems in managing development programs and projects. This particularactivity, which is related to two of the objectives mentioned above, had been strongly recommendedby the participants at the June 1985 workshop. It was also decided that the SPS series would startfirst with Sub-Saharan African (SSA) countries and extend later on to Asia, Latin America, and theMiddle East.

The following statement of objectives was used in the announcement of each of the four SPS onDevelopment Management organized between November 1986 and July 1988:

The proposed seminar aims at promoting the exchange of experiences among senior policy makers.... on the broad theme: institutional reforms for strengthening development management. Theseminar will focus on the coordination aspects of development policy formulation andimplementation. It is expected that participants at the seminar will compare their concreteexperiences and discuss ways of achieving better coordination of development policy formulationand implementation as well as propose measures for strengthening their administrative systemswith a view to making them more development-oriented.

1. Fifteen of the twenty-nine participants at the workshop attended one, two or more of the four seminars.It was, therefore, possible to obtain views on the accuracy and balance of the report.

I

2 Development Management in Sub-Saharan Africa

The decision to focus the SPS series on institutional reforms for strengthening developmentmanagement was dictated by the awareness that the weakness of the public administrationinstitutions in SSA countries was a major explanatory factor for the rather poor record in theimplementation of development programs and projects in these countries. The fact that several of thecountries were also embarking on far-reaching economic policy reforms at about this time (mid-1980s) further underscored the importance of strengthening institutional capacity. Significantly, alarge number of the SSA countries were, on their own initiative (in some cases with externalsupport), engaged in the process of reforming their public administration (PA) systems with a viewto making them more development-oriented. Some of these PA reform initiatives date back to thelate 1960s, and the most notable among them include those in Kenya (1969), Mali (1970), Nigeria(1974), Tanzania (1972), Senegal (1968), and Sudan (1972). By the mid-1980s, several of theexisting reform initiatives were still being revamped while new ones were being launched in someother countries (Central African Republic, Ghana, Sierra Leone, Uganda, and Zambia, amongothers). The fact that several of these PA reform efforts had to be specifically oriented to supportwide-ranging economic policy reforms, variously referred to as national economic recoveryprograms and structural adjustment programs (SAPs), gave an added urgency to the articulation andimplementation of appropriate institutional reform measures. It is also important to mention that theconcern with institutional reform was related in part to the attention drawn to the subject in two keydocuments adopted by African heads of state and government in 1980 and 1985: the Lagos Plan ofAction (1980) and Africa's Priority Program for Economic Recovery, 1986-1990 (1985).

Given the objectives of the SPS series, it was decided that countries to be invited wouldnormally be represented by cabinet members (ministers, deputy/vice ministers and secretaries ofstate) and their immediate collaborators, referred to variously as permanent secretaries, directors-general and secretaries-general. To ensure that participants from a given country would have somechance of making an impact on their return home, each country invited to the seminars wasrequested to send a team of three or four members drawn from the office of the president/primeminister, ministries of finance, planning/economic development, and civil service/administrativereform. There were a few participants from non-ministerial agencies (for example, central banks)national legislatures, and chambers of commerce. In all, 76 participants from 28 countries attendedthe seminars.

Seminar 1: Burundi, C6te d'Ivoire,

(November 10-14, 1986) Mauritania, Niger, Senegal, and Zaire

Seminar 2: Ethiopia, The Gambia, Ghana,

(July 6-10, 1987) Uganda, Sierra Leone, and Sudan

Seminar 3: Benin, Cameroon, Central

(November 16-20, 1987) African Republic, Congo, Gabon, Guinea, Mali,

Rwanda, and Togo

Seminar4: Botswana, The Gambia, Lesotho,

(July 11-15, 1988) Liberia, Malawi, Nigeria, Somalia, and Zimbabwe

Twenty-one of the participants were cabinet members and there were 17 permanent secretaries,secretaries-general or directors-general. The participants also included one central bank governor,three heads of civil services, one member of parliament, two presidents of chambers of commerce,and heads or senior officials of seven management training and research institutions. The list ofparticipants in the seminars is provided as Annex 1 to this report.

Development Management in Sub-Saharan Africa 3

The first SPS organized in West Berlin, in November 1986, for selected Francophone SSAcountries, was in partnership with the Public Administration Promotion Centre of the GermanFoundation for International Development (ZOV/DSE). ZOV/DSE was also EDI's partnerinstitution for the third seminar in the series held in Berlin in November 1987 for another group ofselected Francophone countries. The second SPS, which was the first for selected Anglophonecountries, was held in Addis Ababa, Ethiopia, in partnership with the Economic Commission forAfrica (ECA). The fourth and final SPS, also for selected Anglophone countries, was held inIbadan, Nigeria, in partnership with the Nigerian Institute of Social and Economic Research(NISER). Each SPS lasted for one week and this was considered the ideal duration by mostparticipants.

The wrap-up workshop was organized in West Berlin in December 1988 in partnership withZOV/DSE and attended by a representative each of the two other partner institutions involved inorganizing the seminars, ECA and NISER. There were twelve participants, representing tencountries that had participated in the seminar series (Cameroon, The Gambia, Ghana, Mali,Mauritania, Niger, Senegal, Sierra Leone, Sudan, and Uganda) and two countries that were beinginvited to participate for the first time (Madagascar and Tanzania). Five of these participants (fromThe Gambia, Senegal, Sierra Leone, Sudan, and Uganda) had attended one or the other of the fourSPS, and the other five had not. There were also two senior trainers from Zaire and Ghana whoseparticipation at the workshop was sponsored by the UNEDIL (UNDP-EDI-ILO) project forstrengthening selected management training institutions in SSA countries. In total, then, theseminars and workshop were attended by 85 participants from 30 countries. The list of participantsin the workshop is provided as Annex 1A.

2The Key Issues

Significantly, no formal attempt was made to define development management at any of the fourseminars. From the discussions at the seminars and the workshop, it emerged that participants wereprimarily concerned with arresting the process of institutional decay in their respective countries.The corrective strategy should be a process of institutional rejuvenation or redynamization whichtakes account of ongoing economic policy reforms. To achieve this institutional rejuvenationsimultaneously with the formulation and execution of economic policy reforms calls for insightsfrom several disciplines, notably economics, politics, law, and management/administrative sciences.It was against this background that participants ended up with a broad interpretation of developmentmanagement to include the strengthening, expansion, and adaptation of not only the institutionsusually associated with the machinery of government but also the judicial and party systems as wellas nongovernmental organizations and private sector institutions.

At the first seminar in West Berlin, discussions were focused largely on administrative reform,especially the day-to-day problems in governmental administration.2 The second seminar, the firstfor Anglophone African countries, underscored the multidisciplinary nature and themultidimensional aspects of development management as mentioned above. It was emphasized thatbecause the crisis of development in the different African countries is both economic andinstitutional, economic policy reforms should be accompanied by the redynamization of thepolitical, social, and administrative institutions. On economic policymaking, participants expressedthe need for their governments to be fully involved so that reform measures would not appear to beimposed on the governments but fully "owned" by them and the process fully understood by thepopulation. This led to a consensus among participants on the desirability of capacity building forpolicy analysis and the importance of effective channels of communication between the governorsand the governed. Two institutional reform measures were emphasized by the participants: therehabilitation of the civil service and the improvement of coordination mechanisms to ensureeffective implementation of development programs and projects.

During the third seminar, most of the issues raised at the second seminar reemerged. Participantsdiscussed the problems of selecting the appropriate development scenarios for their countries,including the important subject of the role of the state and the margin between the public and privatesectors. Considerable interest was also expressed in how best to ensure effective citizenparticipation in the development process through decentralized government units and non-governmental organizations. The last seminar benefited from the overview of the precedingseminars provided by the moderator of the series who stressed the importance of viewingdevelopment management as the management of change. There was a general consensus among theparticipants on the need for their governments to simultaneously tackle the problems of economicpolicy reform and institutional reform, which they described as being dynamically interrelated. Oncivil service improvement, they advocated greater professionalism as an instrument for achievingbetter performance. They also emphasized the importance of improving the methods of coordinatinggovernmental activities both within the central government itself and between the centralgovernment on the one hand and decentralized government units and nongovernmentalorganizations on the other.

2. See R. Makharita and S. Henni (eds.), Politiques de gestion du developpement et ajustementinstitutionnel. Berlin, Centre de promotion de l'administration publique (ZOV) et institut de developpement6conomique de la Banque Mondiale, 1988.

4


The variety of issues summarized above were grouped together under the following three broadthemes in the draft report presented to the wrap-up workshop in West Berlin in December 1988:civil service improvement, capacity building for policy analysis, and effective coordination andimplementation of national development policies. The following account of the major findings andconclusions that emerged in respect of these three key issues reflects, as faithfully as possible, boththe differences and similarities in the actual discussions that took place at the seminars andworkshop.

Civil Service Improvement

One of the objectives of the seminars was to propose measures for strengthening theadministrative systems in SSA countries with a view to making them more development-oriented.In each of the 28 countries represented in the seminars, the civil service institution is the core of thepublic administration system. It is, therefore, logical that in discussing performance improvement inpublic administration, the civil service should occupy center stage. Indeed, as already mentionedabove, the first seminar was focused almost exclusively on civil service improvement. Perhaps, thefirst point to highlight on this subject is the intriguing observation made at one of the seminars onhow civil service institutions, which were perceived as valuable assets for promoting developmentin the immediate years after independence, have progressively declined to the point of becomingtargets of strong criticisms for constituting obstacles to development. Is it the initial perception thatwas wrong or have the civil service institutions really deteriorated over the past two decades? Theanswer given to this question at one of the seminars suggests that the participants supported thepoint about the progressive deterioration of an institution that was initially an asset with promise.3According to the participants, the causes of the poor performance of most civil service systems inAfrica include serious decline in the quality of new entrants, the neglect of the civil serviceinstitution by both the government (inadequate equipment and deteriorating conditions of service,especially poor incentive systems) and the institution's own leading managers (lack of commitmentand dynamism); fragmentation of the institution through indiscriminate expansions; problem ofperiodic "purges" (mass dismissals) and partisan politicization. Particular reference was made to theserious resource constraints of recent years which hinder the implementation of corrective measuresin most countries.

Although the country-specific nature of the subject limited cross-national comparisons, someareas of common interest to participants emerged from the discussions of selected countryexperiences. More than half of the countries represented at the seminars were at different stages ofimplementing civil service improvement programs. The list includes Cote d'Ivoire, Mauritania,Niger, Senegal, The Gambia, Ghana, Uganda, Sierra Leone, Sudan, Guinea, Mali, Central AfricanRepublic, Botswana, Liberia, Lesotho, Malawi, Nigeria, and Zimbabwe. The following four issuesfeatured prominently in the discussions: (i) staff reduction and growth control, including census ofcivil servants; (ii) salary and compensation policies; (iii) professionalization of civil service structureand personnel; and (iv) training. It was generally agreed that the overall objective of theimprovement measures being introduced in the four areas (and other related efforts) was to achieveincreased productivity and efficiency.

On staff reduction and growth control, the "demonstration effect" of a thorough census of civilservants was acknowledged. Attention was drawn to the positive results obtained from the conductof civil service census in Tanzania, Sierra Leone, and Cameroon: in Tanzania, a civil service census

3. For a detailed study of the decline of the civil service insititution in Nigeria from the position of beingdescribed as "Nigeria's one real achievement since independence" in the mid-1960s to one in which it becamebattered and shattered from the late 1970s onward, see Ladipo Adamolekun, Politics and Administration inNigeria, London, Hutchinson, and Ibadan, Spectrum Books, 1986.


conducted in 1985 resulted in a reduction of 1.2 billion shillings from a total wage bill of 11 billionshillings; in Sierra Leone, a similar exercise conducted in 1988 resulted in a significant reduction inthe country's annual wage bill; and in Cameroon, the civil service census exercise, baptized"operation antelope," resulted in savings of 23 million CFAF in 1988. It was, therefore,recommended that a census of civil servants should be conducted in countries where this has not yetbeen done. It was emphasized that the purpose of an effective census is not only to establish theactual staff strength while eliminating the rampant phenomenon of "ghost workers," but also toknow where inadequacies exist so that corrective measures might be taken. To ensure that the gainsfrom census exercises are consolidated, it was recommended that civil service personnelmanagement agencies (ministries, departments, or commissions) should establish computerizedpersonnel management systems. However, it was also pointed out that decisions on staff reduction,redeployment, and growth control, which might involve the departure of a significant number ofstaff, should be accompanied by measures for assisting the departing staff in order to mitigate, if noteliminate, negative social and political consequences.

The issue of civil service salary and compensation policies generated considerable interest. Therewas a consensus on the diagnosis of the problem--very low real wages and few incentives resultingin low morale and low productivity and in some cases, loss of skilled staff. Other dimensions of theproblem include reconciling salary differentials and equity within the civil service and comparison ofcivil service salaries and fringe benefits with those available in other parts of the public service(notably public enterprises and universities) and in the private sector. This latter point is particularlyimportant in the light of the importance that some participants would like to see attached to anexchange of top-level managers within public sector organizations on the one hand and betweenpublic and private sector organizations on the other. A critical prerequisite for implementing thisintersectoral mobility is the reduction in the wide disparity which exists in several SSA countries inthe salaries and fringe benefits paid to the top managers in these organizations.4

On professionalization, it was agreed that the objective should be to recruit, train, and deploycivil servants as experts and specialists in specific functional areas such as personnel, finance, andplanning/research/statistics. This would necessitate a radical modification of the status and role ofamateur generalist administrators (in the countries where they exist), and the structure ofgovernment ministries and departments would be reorganized to reflect the functional specializationsof the professionalized personnel. There was general agreement on the significant improvements inproductivity and efficiency that could result from a successful implementation of thisprofessionalization scheme. But the problem of implementation (a few of which were alreadyevident in the Nigerian case presented at one of the seminars) could result in partial and distortedprofessionalization with very limited positive impact on efficiency and productivity.5

The consensus on the importance of staff training as a key element in any strategy aimed atachieving improved performance in public administration institutions was paralleled bydissatisfaction with the limited impact achieved by the combined efforts of national governmentsand intemational organizations in the field of training since independence. At a seminar on trainingand performance improvement in public administration organized in January 1988 as a follow-up tothe first SPS for selected Francophone SSA countries, it was revealed that training policies wereeither unclear or nonexistent and that the training function was not supported with adequate human

4. One proposed strategy for determining wages and salaries with a view to ensuring intersectoral mobilityand high institutional performance in developing countries is to "set salaries for the top management, orelite, in all activities throughout the economy at approximately the same level and provide the same packageof incentives." See A. Israel, Insitutional Development, Incentives to Performance, Baltimore, The JohnHopkins University Press, 1987, p. 131.

5. An important dimension to professionalization which was missing in the discussions is the"development of values, standards, and institutions that are inherent in each profession or skilled work." SeeIsrael, Insitutional Development . . . op. cit., p. 131; see also pp. 148-150.


and financial resources. Attention was also drawn to efforts aimed at shifting emphasis from a legalperspective on public administration to a managerial perspective.6 The only example of a creativeapproach to training cited at the seminars was that of The Gambia where a national training policyhas been adopted, including a five-year "rolling" program that would ensure systematic training forall civil servants. A civil service training advisory committee is to be established to supervise andmonitor the implementation of the program. It was recommended that training needs assessment forthe personnel of public sector institutions should be conducted in countries where this has not yetbeen done. It was also agreed that training institutions at the national, subregional, and regionallevels should be evaluated with a view to taking appropriate measures aimed at strengthening themto ensure improved performance. Opportunities for promoting fruitful coordination and networking,including rationalization and restructuring, should also be identified and implemented.

Participants at all four seminars identified several other actions which would have to be taken aspart of a broad strategy to achieve improved performance in civil service institutions. These issuesinclude review of the legislative framework of the civil service, review of recruitment andemployment/deployment policies and practices, simplification of rules, regulations and proceduresand flexible application of same, restructuring of ministries, departments and other governmentagencies. Others include mechanisms for enforcing accountability and control and public serviceethics (standards of behavior). In recognition of the dynamic interrelationships among these variousissues within the overall context of seeking to achieve increased productivity, efficiency, andaccountability in the civil service institutions, it was recommended that studies should be conductedto shed more light on the full dimensions of the problems involved, to share experiences, andpropose solutions. The following specific studies were recommended: (i) comparative studies instaff reduction and redeployment in the civil service; (ii) comparative studies on remunerationpolicies in the civil service; (iii) evaluation of training policies, training needs assessment, and thereform of training institutions; and (iv) studies on the simplification of administrative rules andprocedures.7

Finally, there was broad agreement on the usefulness of two lessons highlighted in thepresentation of specific national experiences of implementing civil service improvement measures(Cote d'Ivoire, Central African Republic, The Gambia, and Nigeria): (i) the importance of politicalcommitment to both the initiation and implementation of improvement measures and (ii) the need toprovide adequate information on the rationale for the improvement measures being undertaken toboth the civil servants affected and the general public with a view to creating a favorableenvironment for implementation. On the whole, the discussion of implementation experiences wasrather tentative because the institutional reforms cited at the seminars have been in existence for onlya few years.

6. The seminar was jointly organized by the Public Administration Promotion Centre of the GermanFoundation for International Development and the Bureau organization et methodes (BOM) of the office of thepresident, Senegal. EDI provided pedagogical assistance to the seminar. Significantly, participants at aroundtable conference of heads of management training institutions and senior government policymakers inAnglophone West Africa held at the Administrative Staff College of Nigeria and sponsored by theCommonwealth Secretariat in November 1987 had made similar observations to those made later at the Dakarseminar.

7. Participants were informed of the ongoing World Bank's African Regional Study on Public SectorReform in four selected countries to document and assess these experiences in civil service improvement,including issues of staff strength reduction and redeployment and salaries and employment policies. Thisshould add to the available knowledge on implementation experience.


Capacity Building for Policy Analysis

In one of the background papers prepared for the seminars, "Adjustment Policies in Sub-SaharanAfrica and their Impact on the Institutional Development Process,"8 a key element in the policyenvironment for managing development in SSA countries was summed up as follows: 'The mainthing is that, somewhere within the administrative structure, there should be a group of peoplewhose main job it is to think freely about the country's future while taking account of constraintsstemming from recent and predictable future developments in the country's economic potential."This idea of systematic thinking about a country's future and articulating a vision of the society wasreferred to as the "strategic function" in governance. While there was a general consensus on theimportance of this strategic function, it was also agreed that it would be difficult to offerprescriptions applicable across countries. However, participants in the seminars acknowledged theneed for each country to adopt a formal statement of national development policy characterized byclarity, coherence and consistency. The following were identified as possible sources of nationaldevelopment policies: development plans, constitutions, and special "blueprints," such as partymanifestos. And the alternative institutional arrangements examined at the seminars were: (i)establishment of a policy advisory body at the level of the president or the head of government; (ii)establishment of policy analysis, planning and research units within selected (core) ministries andagencies; and (iii) encouragement of policy research by nongovernmental "Think-Tanks," researchinstitutions and universities.

The following are the major points that emerged from the discussions on institutionalarrangements for building local capacity in policy analysis.

* Given the centrality of the president or prime minister to the policy process in SSA countries,it is desirable to establish a high-level policy advisory body in his/her office. The policyadvisory body could be either ad hoc or permanent, depending on local realities. To functioneffectively, the body should have clear terms of reference, focus on medium- to long-termnational strategies and policies, and have access to policy research work produced by thegovernmental bureaucracy and research institutes and universities.

* It is essential to develop policy analysis capacity within the governmental bureaucracythrough the establishment of policy analysis, planning and research units. However, adecision on whether to establish a single unit at the national level or encourage ministries anddepartments to establish such units would be a function of the scope and size of governmentaladministration in each country. As is the case with the presidential policy advisory body,ministerial units should also maintain effective linkages to policy research work carried outoutside government. In countries where ministers have special advisers, efforts should bemade to ensure that they work in harmony with the in-house policy and planning researchunits.

* While acknowledging the possible valuable contributions that nongovernmental "ThinkTanks" could make to policy analysis capacity building, participants emphasized that suchinstitutions were still underdeveloped in SSA countries and that this could be the case forsome time to come. It was, therefore, agreed that emphasis should be placed on developingand strengthening the policy analysis capacity of universities, research institutes, and centralbanks. Government ministries and departments should be encouraged to provide for budgetallocations that could be used to commission policy research.

* Notwithstanding the usefulness of diversifying the source of policy advice to governments(from outside policy experts, independent advisory councils/committees, political partyresearch staff, interest groups, chambers of commerce, professional associations, and the

8. By Xavier de la Renaudiere, former senior staff member of the World Bank.


mass media), career civil servants should be made to feel that they are recognized as animportant source of advice. Failure to do this could dampen their morale and reduce theircommitment to the implementation of government policies. This balancing game isparticularly important in countries where government leaders have special advisers.

• As members of intemational economic and financial organizations like the World Bank andthe International Monetary Fund, SSA countries should accept the contributions of suchbodies to the building and strengthening of policy analysis capacity. Any other availableextemal assistance for the same purpose (for example, the contributions of Foundations)should also be welcomed. However, to achieve the desirable objective of limiting the impactof the "foreign" factor on national policymaking, it is necessary to combine the building oflocal policy analysis capacity with deliberate and regular utilization of available local policyexperts.

* Systematic and structured involvement of public opinion in policymaking can help to improvethe quality of policies and enhance the potential for effective implementation. To achieve suchmeaningful involvement of the public in policymaking would require progress in the directionof an open society and a participatory political culture. A closely related point is the need tostrike a balance between top-down and bottom-up approaches in determining nationalstrategic choices. This implies a real devolution of powers to decentralized local institutionsso that citizens can actively participate in the determination of policies that directly affect them.The largely formalistic commitment to these forms of participatory policymaking in manycountries has to be translated into concrete actions through the establishment of appropriateinstitutions equipped with the necessary human, financial, and material resources. (This pointis discussed further in the section on "Coordination and Implementation of DevelopmentPolicies.')

e On the education and training of policymakers, it was agreed that the idea of high-levelseminars, workshops and conferences (regional, subregional and national) for both politicaland administrative leaders should be maintained and expanded. The desirability of involvingsenior military officers in such training activities was raised at one of the seminars in view ofthe fact that military rule is a widespread phenomenon in SSA countries. To ensure thesuccess of these high-level seminars, it is essential to pay attention to the quality of thetrainers (importance of relevant practical experience), the location of the training and thetraining methods (emphasis on active and participatory training methods). Since these policyseminars will be concerned essentially with sensitization and increasing awareness aboutbroad issues in policy management, the duration should be limited to between three to fivedays.

* For senior officials immediately below the levels of ministers and higher civil servants,seminars, courses and workshops on policy analysis lasting between two and six weeks,could be organized. While such seminars/courses would not turn the officials into trainedpolicy analysts, they would be exposed to the major concepts and some of the diagnosticskills used in policy analysis. It was also suggested that universities and management traininginstitutions should start to incorporate formal training in policy analysis in their curriculawhere this is not already the case.9

9. The African Association for Public Administration and Management (AAPAM) and the EconomicCommission for Africa (ECA) recently organized a workshop on "Critical Skills in the Public Policy Process"for higher civil servants and representatives of schools and institutes of public administration andmanagement in Banjul, The Gambia. AAPAM plans to organize a few more workshops and hopes that thetraining institutions would thereafter continue to provide appropriate training in policy management for civilservants. See AAPAM Newsletter, No. 27, May-August, 1988, pp. 5-7.


Two issues on which participants expressed strong views deserve to be highlighted. First, therewas very strong support for encouraging interdisciplinary policy research and its utilization. It wasgenerally accepted that the most promising strategy is a combination of in-house (that is, within thegovernmental bureaucracy) research capacity building with outside sources, notably universities,research institutes, and "Think Tanks." The second issue relates to some ambivalence in the attitudeof many career higher civil servants to the provision of policy advice by outsiders (noncivilservants) of all categories to the political decisionmakers. While expressing support for the inputsfrom outsiders, they would nevertheless like to serve as "gatekeepers" who will filter whatever theyconsider "appropriate" advice to the political leaders. This insistence on channelling alternativepolicy advice through the civil service filter was stronger among the Anglophone higher civilservants than among their Francophone counterparts.10 The achievement of the ultimate objective ofimproving the quality of government policies will depend, to a considerable extent, on the ability ofincumbent political leadership teams to derive maximum advantage from policy advice inputs fromboth the career civil service and the outside sources.

Coordination and Implementation of National Development Policies

Two issues of considerable interest to the participants during the discussions of the coordinationand implementation of national development policies were: (i) the context and style of policy-making and (ii) the desirability of redefining the role of the state.

On the Context and Styles of Policymaking

There was general agreement among participants on the possible conflict and complementaritybetween two approaches to policymaking in govemmental administration. On the one hand, ademocratic participatory approach, which requires extensive consultations with relevant interestgroups and publics and the actual involvement of all the agencies concemed with the policy beingformulated, would tend to be slow while possessing the advantage of being more enduring becauseof its participatory nature. On the other hand, technocratic policymaking, which relies largely on thecontributions by technocrats, has the advantages of speed and decisiveness, but the policy outcomesproduced could be difficult to implement and sustain in the face of opposition from affected groupswho had not been consulted. While it would be desirable for government leaders to seek to combinethe positive aspects of the two approaches, prevailing realities could prove decisive. For example, adecision on containing a fire outbreak hardly requires any consultation; fire fighters are called uponfor help. And with regard to economic policy choices, which are usually more complicated thancases of fire outbreak, the institutional arrangements in a given country significantly affect thequality, speed and sustainabiity of the policies adopted.

The discussions of the contexts within which policymaking takes place in most SSA countriesrevealed that certain prerequisites for effective democratic and technocratic policymaking are largelyabsent. Thus, for example, the characteristics of an open society, such as freedom of expression andassociation, publication of, and access to, official information, and a settled political culture thatallows for free competition for political power and has an established mechanism for leadershipsuccession which are a sine qua non for democratic policymaking, are largely absent in most SSAcountries. Similarly, the expertise and professionalism that underpin technocratic policymaking(notably, the mastery of the diagnostic skills for articulating altemative policies) are in short supply

10. The existence of the French-inspired ministerial cabinet system in many Francophone Africancountries probably accounts for the greater tolerance shown for extra-civil service advisers in those countries.The progressive abandonment of the "civil service filter" with regard to policy advice in British governmentaladministration is a recent pheonomenon that has not yet caught on in most Anglophone African countries.


in most of the countries. Therefore, practically every country still has to strive to create the requisiteconditions for ensuring the productive blend of democratic and technocratic policymaking. (Forobvious reasons, the varying degrees of openness and technocratic competence in the differentcountries represented at the seminars were not discussed.)

Redefinition of the Role of the State

There was general agreement among participants that the role assumed by the postcolonial statein SSA in the immediate postindependence years needs serious review and redefinition. Mostparticipants took a pragmatic position on the subject, supporting the idea of privatization as one wayof reducing the current broad scope of the public sector in their respective countries. It wasrecommended that the determination of the margin between the public and private sectors in eachcountry (which would vary over time) should always follow extensive consultations involving allthe economic interest groups within the society. One major indication of the desirable futuredirection is the strong emphasis on public sector and private sector cooperation (including theinvolvement of nongovernmental and voluntary organizations) by participants from severalcountries in two of the seminars. This trend will certainly have important consequences for themanagement of development programs and projects in the different countries in the 1990s.

Two other points made at the seminars could assume considerable importance in countries wherethe redefinition of the role of the state is taken seriously. First, there are activities for which the stateis too large as a unit of operation, and this constitutes one of the arguments for the creation and/orstrengthening of decentralized institutions. Second, there are activities for which the state is rathersmall as a unit of operation. This reality is one of the key explanations for the new interest inpromoting subregional and regional economic entities in SSA.

Coordination and Implementation of Development Policies

Three types of coordination were discussed: within central government ministries and agencies,between central government and subnational governments, and between government as a whole andthe private sector. The issue of implementation was discussed essentially as an important dimensionto coordination, and particular reference was made to the fact that the problems of implementingdevelopment programs and projects are overwhelmingly country-specific. The key points raisedduring the discussions are as follows:

* Development plans are still considered key instruments for achieving coordination of nationaldevelopment in several SSA countries. However, the serious resource constraintsexperienced in most SSA countries in recent years are leading to a reconsideration of thecentral position hitherto occupied by five-year, medium-term development plans. While somecountries seek to improve development planning through the decentralization of the planningprocess and its effective linkage to the political process (Botswana and Zimbabwe), others arede-emphasizing the role of medium-term plans and opting for short-term (two-or three-year)"rolling" plans that are closely linked to an annual public investment program and the annualbudget.

* Notwithstanding the changing role of development plans as instruments of policycoordination in many SSA countries, the relationship between planning and finance is widelyregarded as posing serious problems to both the so-called "central guidance cluster" (office ofthe president/prime minister, ministries of planning and finance, and central bank) and thetechnical ministries. Participants at each of the seminars showed great interest in discussingthe relationship between the ministries of planning and finance. In the end, no consensus wasreached on the balance between the advantages and disadvantages of separate or combined


ministries of planning and finance. However, a large number of participants were of the viewthat a single ministry of finance and planning would help to ensure more effective co-ordination. In this connection, it is instructive to note that at one of the seminars, twoministers of finance and planning from the same country addressed the coordination issuefrom significantly contrasting viewpoints: each minister would like his ministry to serve asthe lead coordinator in the determination of development programs and projects to be executedunder the annual budget But, there was a broad agreement among participants on the need tospell out clearly the respective roles of planning and finance ministries/departments and thecentral banks as well as the relationships between these core coordinating organs and thetechnical ministries.

* It is significant that the evidence provided on several of the countries represented at theseminars show that the existing institutional arrangements for coordinating the planning andfinance functions are characterized by conflict, tension, and ambiguity. There appears to bevery little to show for the efforts made in many of these countries (with substantial supportfrom bilateral and international donors, notably the UNDP and the Bank) to strengthen thetwo functions and to promote coordination among them. Only one country, Botswana,reported satisfaction with the functioning of its single ministry of planning and finance.11 Thecoordinating mechanism adopted consists of the posting of planning officers from theministry of planning and finance to staff the planning units in the other ministries. Theseplanning officers are charged with the responsibility of ensuring coordination at both theformulation and implementation stages of the planning process. The reports from theindividual ministries are reviewed at the regular meetings of all planning officers presidedover by the chief executive of the ministry of planning and development.

* A special dimension to the coordination of national development policies is the coordinationof decentralized development. Although most of the participants claimed that theirgovernments have adopted decentralization policies, little evidence of actual implementationwas provided. However, there was consensus among participants on the importance ofensuring that central governments share decisionmaking on development objectives withdecentralized institutions so that effective coordination of national development policieswould be achieved. This, in turn, would ensure that decentralized institutions become fullycommitted to the implementation of the agreed policies and programs.

* Consistent with the increased importance attached to the role of the private sector inpromoting development in many of the countries represented at the seminars, participantsrecommended that coordination between the public and private sectors should be accordedhigh priority in the determination of national development policies. It was recommended thatgovernments should seek to establish clear guidelines on the desirable frontier between thepublic and private sectors after extensive consultations with all the relevant economic interestswithin the society. Participants also agreed that governments should seek to remove obstaclesto private sector development efforts by adopting simple and flexible regulatory policies andpractices. Specific mention was made of the need to establish one-stop agencies to provideapproval for prospective investors. Such agencies would replace the existing multiplebusiness licensing offices in most countries. It was further recommended that governmentsshould seek to coordinate the contributions from nongovermmental and voluntaryorganizations (both indigenous and foreign) to the development offort.

* One specific issue of implementation examined at the seminars was the adequacy, orotherwise, of existing institutions for implementation and the need for strengthening existing

11. An interesting presentation on a strategy for achieving coordination through a system ofinterministerial committees in Rwanda was made at one of the seminars. But the experiment is still in itsearly stages and it is, therefore, too soon to assess its effectiveness.


institutions, creation of new ones or reallocation of functions among institutions. In general,the need for thorough institutional analysis before reaching a decision on the most desirablecourse of action did not appear to have been widely appreciated. Rather, the tendency appearsto be a preference for the creation of new institutions as if that were in itself a step in thedirection of effective implementation. It might also be the case that the capacity to strengthen aweak institution calls for competencies (notably organizational analysis and organizationaldevelopment) that are not readily available in most of the countries concemed.

3Future Directions in the Field of Development Management

Strengthening Institutional Capacity

The key recommendation that emerged from the discussions at the seminars and the wrap-upworkshop is the need to strengthen institutional capacity in SSA countries. The term "institutionalcapacity" was used to refer to the ability of an institution to make effective use of available human,financial, and material resources for the achievement of the objectives set for it. Although theprimary concem of participants was with public sector institutions, notably ministries, departments,parastatals/public enterprises and other governmental agencies (including subnational governmentunits), it was also agreed that private sector institutions (for example, private companies and banks),nongovemmental organizations, cooperatives, community organizations, professional and voluntaryassociations contribute in varying degrees to the development process. This recognition of the needfor simultaneous strengthening of institutions in both the public and private sectors is consistentwith the point already made about participants' view that the public and private sectors shouldhenceforth be acknowledged as partners in the development process.

With regard to the public sector, it was agreed that a prerequisite for strengthening institutionalcapacity is a clearer understanding of the role of the state in national development. There wasconsensus on the trend towards a reduction in the size and scope of the public sector as well as onan emphasis on improving performance in the activities that remain under state control.

Concerning the economic activities shed by the state to be managed by the private sector, it wasstressed that altemative approaches to effective privatization/divestiture should be explored. Thediscussions suggest that several of the countries would be interested in lessons of experience fromboth developed and developing countries on issues relating to the management ofprivatization/divestiture and improved performance in public enterprise management.

The discussions on public sector institutions were wide-ranging, as revealed by the followinglist of what are regarded as key elements that should feature in a national strategy for institutionaldevelopment (ID) in SSA countries: political institutions and processes; legal framework of nationalinstitutions; civil service reform; public enterprise reform; capacity building for policy analysis;decentralized and community-level institutions and processes; coordination mechanisms andprocesses; information management systems; management of external resources; training strategy;improving institutional performance; and South-South cooperation and international cooperation.Although many participants would like future work in the field of development management toaddress practically every subject listed in the proposed ID strategy, the following were identified asthe priorities.

Understanding the Political Context of Devetopment Management

Participants at the workshop agreed that there is a strong linkage between the nature andfunctioning of political institutions and processes and the effectiveness and efficiency of institutionsestablished for managing development policies. This implies that an essential prerequisite forachieving improvement in development management is a recognition of the importance of thepolitical context within which it takes place. The suggestions made by some participants includegreater democratization, measures for ensuring accountability, such as legislative control of theexecutive, and empowerment of citizens for active participation in the political process. Two specific

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measures were proposed for promoting citizen participation: public access to governmentinformation and the protection of citizens' rights through the establishment of ombudsmaninstitutions. The phenomenon of military rule in governance was discussed at some length, but therewas no agreement on whether its influence, for good or bad, was an appropriate subject fordiscussion in regional seminars/workshop. In contrast, it was agreed that political leaders (includingmilitary political leaders) should be exposed, through appropriate mechanisms, to the institutionalissues in development management. Notwithstanding the general agreement on the inadequacies ofthe existing political institutions in the SSA countries, it was difficult to proceed to the level ofprescriptions, given both the country-specificity and intense sensitivity of the issues involved.Clearly, the initiative for creating a favorable political environment for development managementshould rest with each country, and the help from outside would probably consist of conductingrelations with each country in a manner that is conducive to the strengthening of political institutionsand processes (greater democratization, openness of the political system, and encouragement ofcitizen participation).

Civil Service Improvement

The interest shown by participants in the seminars and workshop in how best to improve publicservices in SSA countries was focused specifically on the civil service institution, which constitutesthe core of the public service in each country. Although the exact impact of the trend toward areduction in the scope and size of the public sector on the civil service institutions would only beknown on a case by case basis, there was broad agreement on the need to arrest the deterioration ofthese institutions and take measures for improving their performance. The key recommendation thatemerged is that some studies should be conducted with a view to obtaining a deep understanding ofthe problems of the civil services with particular reference to the legal and legislative framework,structural reorganization, recruitment and deployment, salaries and compensation policies andpractices. It was also recommended that several of the studies should have a comparativeperspective so that relevant lessons could be learnt from both the failures and successes recorded inother countries outside Africa.

Training: Strategies, Institutions, and Materials

The importance attached to increased training as a response to poor institutional performance inSSA countries appears to contradict the acknowledgment by participants that the huge investmentsin training embarked upon in most countries since independence have produced only modest results.But it is also probable that there is hardly any viable alternative to training. More importantly, thepoor results of the past training efforts were caused more by the inadequacies of the trainingactivities carried out than by the ineffectiveness of training as an instrument for achieving improvedinstitutional performance. It was recommended that each country should articulate a training strategyconsisting of a national training policy, which spells out the state's responsibility for the provisionof training (notably the provision of adequate annual budgetary allocations) and the rights andobligations of every state functionary to attend training programs. The strategy should also coverthe institutional arrangements for managing the training programs.

* It was emphasized that the conduct of a training needs assessment for the personnel of publicsector institutions should be accorded the highest priority in each country in implementing thetraining policy.

e Two priority areas identified for the acquisition of critical skills by middle, and senior-levelmanagers in the public sector are policy analysis and information management. There wasgeneral interest in the provision of training activities by national, subregional, regional or


international (bilateral or multilateral) institutions focused on the various elements of IDidentified above.

* Consistent with the participants' interest in public-private partnership in promotingdevelopment, it was recommended that training programs organized for public sectormanagers should provide for the participation of some private sector managers with theproviso that appropriate arrangements are made for cost-sharing.

* On training institutions, it was recommended that evaluation of existing institutions should beconducted with a view to taking appropriate measures aimed at strengthening them to ensureimproved performance. It was also suggested that opportunities for promoting fruitfulcooperation and networking involving institutions at national, subregional, and regional levelsshould be identified and implemented.

* On training materials, it was recommended that strong emphasis should be put on theproduction of materials that would be relevant to the realities in SSA countries. It wassuggested that African trainers should be assisted to develop the capacity to produce asignificant proportion of such materials.

What Role for EDI?

Participants at the workshop were informed that EDI's future work program in developmentmanagement in SSA will take into account the desirable future directions that have been indicated.The activities that EDI proposes to undertake in this field, as set out in the Institute's strategic planfor 1990 to 1994, are in two broad categories: (i) conduct of direct training programs and (ii)development of training institutions.

Conduct of Direct Training Programs

Direct training programs to be conducted between fiscal 1990 and fiscal 1994 will focus on thereform of public service (with emphasis on the civil service), improved management of publicexpenditures (policies, procedures, and techniques), public enterprise management (rationalization,restructuring, rehabilitation, and divestiture), and management of decentralized and local-levelinstitutions. Wherever appropriate, efforts will be made to integrate, to the extent possible, theinterests of the private sector in both the content of a training program and the selection ofparticipants. This strategy is being adopted in response to the new commitment in SSA countries topublic-private sector partnership in the development process. Furthermore, in organizing theseactivities, EDI will seek to involve selected partner institutions with demonstrated potential in thedifferent areas. The work program also provides for the allocation of some resources to thedevelopment of training materials that would be used in the training activities mentioned above. Thematerials will be prepared partly in association with staff members in selected partner institutions,and partly by consultants with first-hand knowledge of, and experience with, public serviceinstitutions and processes in SSA countries. The latter category would include retired African seniorcivil servants and senior academics (with some practical experience).

Development of Training Institutions

In addition to the forms of assistance to selected training institutions associated with EDI's directconduct of training programs (see above), pedagogical assistance, consisting of advice on designand evaluation of courses and seminars and help in teaching courses/seminars, will be provided tosome training institutions that are actively involved in providing training programs similar to thoseundertaken by EDI. Finally, EDI is involved, in association with the UNDP and ILO, in a project


whose objective is to strengthen 14 selected management training institutions in SSA countries. TheUNDP-EDI-ILO (UNEDIL) project has five main components: (i) strengthen (internal) institutionalmanagement; (ii) faculty development; (iii) program development; (iv) assistance to strengthenregional training associations; and (v) women-in-management and women-in-development issues.The ambitious aim is that, by 1994, the 14 core institutions involved in the project would havedeveloped adequate self-reliance to play the lead role throughout SSA on issues of institutionalreform and policy management.

Postscript

The major achievements of the seminars and workshop on which this report is based arehighlighted in the Executive Summary. In this Postscript, I wish to make three generalobservations.

The willingness of 85 senior African policymakers (including 25 ministers) to participate in aseries of seminars and workshop devoted to the exchange of views and experiences on issues indevelopment management is very significant. The obvious explanation appears to be the importancethat the participants attach to the strengthening of institutional capacity for developmentmanagement. The point was made in the last SPS in Ibadan and in the workshop in West Berlin thateconomic policy reform and institutional reform must go at an equal rate. This assertion is alsoconsistent with the trend in recent structural adjustment programs where institutional strengtheningis recognized as essential for the success of economic reforms.

Another remarkable point about the seminars and workshop is the consensus among participantson the importance of the key issues that were discussed in spite of the distinctive local realities in thedifferent SSA countries represented. Significantly, there were more similarities than differences inthe national perspectives on these issues. This phenomenon certainly has something to do with thefact that development management, understood as the management of change, has the sameessential features in all SSA countries. There are two converging dimensions to the change processtaking place in these countries. First, there is the slow process of changing the administrativeinstitutions and practices inherited from the erstwhile colonial powers to take account of post-independence realities. In particular, the primary concern of the colonial administrative systems withthe maintenance of law and order had to be reoriented toward the development objectives of thepost-independence governments. Second, the development crisis experienced in practically everyone of these countries over the past five or more years has led to the adoption of broadly similardevelopment policy reforms which in turn call for wide-ranging institutional reforms. In thesecircumstances, the differences in the administrative legacies in the countries (largely anAnglophone/Francophone dichotomy) became less significant than the similarities in the institutionalreform measures for formulating and implementing appropriate development policies.Consequently, there are more similarities than differences in the contents of the institutional reformmeasures currently being implemented in The Gambia, Ghana, and Uganda, on the one hand, andthe Central African Republic, Mauritania, and Senegal, on the other. This reality constitutes a strongargument in support of a significant increase in the number of bilingual training activities on thecontinent.

A final observation concerns a few important gaps in this report. Given what is widelyacknowledged as the "implementation gap" in the management of development programs andprojects in SSA countries, it is surprising that the solutions proposed by the participants did notreally go beyond those already advocated in existing institutional reform programs, except perhaps,the strong case made for building indigenous capacity for policy analysis. The critically importantissue of the impact of culture on management, especially the challenge of creative adaptation ofpositive cultural elements and the abandonment of certain negative elements, were not raised by the


participants. For example, what are the consequences of the social welfare network in mosttraditional African societies for the delivery of social services? And in what ways do the differentpatterns of clientelist political and religious relations in many of the SSA countries affect disciplineand performance in public sector organizations? It is possible that the cultural diversity on thecontinent was responsible for this silence. If this is the case, the subject could be more appropriatefor national seminars and workshops. Another important missing topic in the discussions is theimpact of technology on management. Although technological development is still at a rather lowlevel in most SSA countries, there are already some management processes and procedures ingovernmental organizations, public and private enterprises that have become exposed totechnological innovations, especially in the areas of office technology and information technology,such as computerization and automatic data processing. This subject is likely to receive someattention in the 1990s. Perhaps the most significant gap was the total absence of any reference to theproblem of corruption in its various manifestations: abuse of office for personal and groupenrichment, embezzlement, bribery, and in some cases, straightforward theft. While this problem isnot peculiar to SSA countries, its deleterious effects in many of the countries constitute seriousobstacles to the implementation of development programs and projects. It would, therefore, benecessary for each country to adopt appropriate damage control measures.

Annexes

Annex A

List of Participants

Berlin INovember 10-14, 1986

Burundi

M. Damien BARAKAMIYE M. Kovadio ADJOUMANIMinistre de la Fonction Premier Conseiller, Charge de laPublique Cooperation Economique,

Ambassade de C6te d'Ivoire,M. Liberat NDABOROBEYE BonnDirecteur du Cabinet Ministere ala Presidence charge du Plan Mauritania

M. Jean-Berchmans NSABIYUMVA M. Yessa ETHMANE SID'AHMEDDirecteur du Cabinet Ministere Ministre de la Fonctiondes Finances Publique, du Travail, de la

Jeunesse et des SportsC6te d'Ivoire

M. Amadou Ousmane DIALLOM. Jean-Jacques BECHIO Conseiller a la PresidenceMinistre de la FonctionPublique M. Samba THIAM

Secretaire d'Etat au BudgetM. Joseph KLAH-TEBAHChef du Cabinet du Ministre de la NigerFonction Publique

M. Mahamadou MADOUObserver Secretaire Gendral de la

PresidenceMme. Dominique BLINLIN-DADIECharge de Mission, Attach6 Mme. Mariama SALIFOUAdminiistratif, Cabinet du Ministre Secretaire General du Ministare dede la Fonction Publique, la Fonction Publique et du TravailC6te d'Ivoire

Mne. Siddo Mariama HAMAM. Yasime IdAiss DIALLO Directrice Adjointe deConseiler Technique, Ministere l'Analyse Economique et de lade la Fonction Publique, Cote Planification, Ministere du Pland'Ivoire

21


Senegal M. Ragaa MAKHAR1TAFormateur Principal, Division de

M. Andre SONKO la Coordination et de la GestionMinistre de la Fonction du Ddveloppement, Institut dePublique, du Travail et de Developpement Economique de lal'Emploi Banque Mondiale

M. Moussa NDOYE Other ParticipantsSecretaire d'Etat a laDdcentralisation, M. Enrique GROISMANMinistere de l'lnterieur Vice-Ministre, Fonction

Publique, ArgentineM. Hady Mamadou LYSecrdtaire d'Etat a la M. Xavier de la RENAUDIEREDecentralisation, Directeur, Bureau Special pourMinistere du Plan l'Afrique, Banque Mondiale

Observer M. Theodore NKODOChef de Division, Coordination et

M. Samba MBODJ Gestion du Developpement,Ministre-Conseiller, Institut de DdveloppementAmbassade du Sdndgal, Bonn Economique

Zaire M. Pierre LANDELL-MILLS

Chef de Division,t. Yamutumba KATANGA D6partment des Programmes II,

Secretaire d'Etat Rdgion de l'Afrique de l'Ouest,

France Banque Mondiale

M. Paul KEVENHORSTERObserver Directeur General, Fondation

M. G6rard WIN4TER Allemande pour le DdveloppementDirecteur Adjoint de l'Institut Inteational (DSE)International de l'Administration M. Carl-Ludwig WAGNERPublique, Paris Ministre des Finances, Vice-

Moderator Ministre-President de Rhenanie-Palatinat, Mainz

M. Guy de LUSIGNAN M ebr OIDirecteur Adjoint, Institut de M. Herbert KONIGDdveloppement Economique de la Ministerialdirigent A.D.,

Banque Mondiale ~~~~~Minister Federal de 1'Economie,Bonn, Professeur a l'Universit6

Codirector Hamburg

M. Joachim KRELL M. Joachim MULLERDirecteur, Centre de Promotion de Charge de Programme pour lesL'Administration Publique de la Fondation Gestions de Base, les Ecoles etAllemande pourle Developpement International Instituts d'Administration, Centre

de Promotion de l'Administrationde la DSE


M. Eckhard HEIDLINGS6cartaire du S6minaire

Addis AbabaJuly 6 - 10,1987

EthiopiaMr. Mukalaazi Kibuuka

Mr. Yilma Bekele Economic Assistant to the PrimeManager Minister and Secretary to theResearch Department Presidential Economic CouncilEthiopian Management Institute (EMI)

Mr. H. J. ObboMr. Meresha Gugss Pernanent SecretaryCommissioner Office of the President and Head ofCivil Service Commission Civil Service

Mr. Alemayu Sierra LeoneHead, Planning and Research H. E. D. Abdullai ContehMinistry of Finance Attorney General and Minister of

The Gambia Justice (Former Foreign Minister)

AMr. Alieu M. N'gum Mr. Emile V. CarrDirector of Planning PresidentMinistry of Planning and Chamber of CommerceIndustrial Development

SudanGhana Mr. Abdel Karim Yacoub

Mr. E. A. Sai Director GeneralMember/Secretary Sudan Academy for AdministrativeCommittee of Secretaries and Head of SciencesCivil Service

Dr. El Hag El Tayeb El TahirDr. Kofi Frimpong Deputy CommissionerCoordinator for Skills Relief and Rehabilitation CommissionMobilization,Training andAdministration Mr. Ismat Mustafa AbdelhalimStructural Adjustment Program UndersecretarySecretariat (SAPSEC) Civil Service Chamber

Ministry of Finance andMr. G. K. Sackey Economic PlanningMember/SecretaryNational Economic Commission Moderator

Mr. G. de LusignanUganda Deputy DirectorH. E. Abbey Kafumbe-Mukasa Economic Development InstituteDeputy Minister World BankMinistry of Finance

24


Seminar Codirectors Mr. Peter Efage

Mr. L. Adamolekun Regional AdviserPublic Administration, ManagementCoordination and DevelopmentanMnpwrDvsn

Administration Division r

Economic Development Institute Dr. James A. Bukhala

Dr. M. J. Balogun Chief, Human Resources Development

Regional Adviser Section, PAMNDPublic Administration, Management lr. Crispin Grey-Johnson

Resource Persons Economic Affairs OfficerPublic Administration, Management

Professor A. Phillips and Manpower DivisionDirector GeneralNigerian Institute for Social and The World BankEconomic Research (NISER) Mr. M. Payson

Ibadan, Nigeria Resident Representative

Professor G. Mutahaba Bank Mission, Ethiopia

Secretary-General Mr. T. NkodoAfrican Association for Public Mr. T. ChoeoAdministration and Management Division Chief

Coordination and Development

Mr. L. de Merode Administration DivisionSenior Economist Economic Development Institute

Public Sector Management UnitAfrica Technical DepartmentWorld Bank

Economic Commission for Africa

Dr. Sadiq RasheedChief, Public AdministrationManagement and Manpower Division

Berlin IINovember 16 - 20, 1987

Benin S. E. Francois FARA-FROND

Secretaire General,S. E. Saliou ABOUDOU Chambre du Commerce et d'Industrie,Ministre de la Justice, Charge de des Mines et de l'Artisanat (Ancienl'Inspection des Entreprises Publiques Ministre d'Etat, Charge des Financeset Semi-Publiques et du Plan)

M. Ldonard GBAGUIDI S. E. Louis PAPENIAHConseiller Economique a la Presidence Secretaire d'Etat au Plan

M. Justin GNIDEGOU CongoMembre du Bureau Politique du Parti,President, Departement de M. D. DIABATANTOUl'Agriculture et de l'Industrie a la Secretaire Genral au PlanPresidence

GabonCameroon

M. Mezui MVEM. Theodore BOUGNA BARLA Directeur de la Planification Generale,Sous-Directeur du Contr6le de Ministere de la Planification et del'Execution du Plan, Ministere du Plan l'Economieet de l'Amdnagement du Territoire

M. Favien OVONO-NGOUAM. Samuel EBO Conseiller Economique aupres duDirecteur General, Ministare des Finances et du BudgetCentre National d'Administration et deMagistrature Guinea

M. Eyenga ESSOMBA S. E. Mamouna BANGOURADirecteur Adjoint de la Prevision, Commissaire General b la ReformeMinistere des Finances Administrative

M. Samuel FOKWA M. Michel KAMONOInspecteur d'Etat Directeur Gen6ral au Plan

Central African Republic Mali

S. E. Guy DARLAN S. E. Mamadou TOUREMinistre, Conseiller Economique a la Ministre des Finances et du CommercePresidence

S. E. Ahmed MAHMOUDMinistre de l'Emploi et de la FonctionPublique

26


Rwanda Togo

M. Alexandre MUTERABEJURU S. E. Kofi 0. EDOHSecr6taire General. Ministre de l'Enseignement TechniqueMinistere de la Fonction Publique et et Professionnellede la Formation Professionnelle

M. Kwassi KLUTSEM. Callixte NZABONIMANA Directeur de la Coordination du PlanChef de Service Planification a laPresidence Observer

M. Justin TEMAHAGALI S. E. A. TALLSecretaire General, Ambassadeur du Mali a BonnMinistere de l'Interieur

World Bank/Economic Development Institute

iVL Ladipo ADAMOLEKUN M. Guy de LUSIGNANFormateur principal a l'IDE, Directeur Adjoint, EDICo-Directeur du Seminaire Mod6rateur du Seminaire

Mine. Myma ALEXANDER M. Louis de MERODEChef de Division (Ddpartement Charge Principal d'OperationsTechnique, R6gion Afrique), BIRD (Region Afrique), BIRD

M. Xavier de la RENAUDIERE M. Th6odore NKODOAncien Directeur de Departement, BIRD Chef de Division a l'IDEConsultant/Confdrencier

M. Ismael SERAGELDINDirecteur de Departement (RegionAfrique), BIRD

German Foundation for International Development

M. Joachim KREL M. Joachim MULLERDirecteur du Centre de Promotion de Charge de Programme pour les Gestionsl'Administration Publique (ZOV) de la de Base, les Ecoles et les InstitutsDSE d'Administration, ZOV/DSECo-Directeur du Seminaire Co-Directeur du Seminaire

Consultants/S peakers/Rapporteurs

M. FLIEDNER Promotion de l'Administration) duMinisterialrat, Chef de Section 221 Ministere de la Coopdration(Education, Sciences, Mass Media, Economique


M. Josef HANSEN M. Robert DOSSOUMinisterialrat, Chef de Section 112 Professeur et Doyen de Faculte a(Sahel, Soudan) du Ministere de la I'Universite Nationale de laCooperation Economique Republique de Benin

Consultant/ConferencierM. Herbert KONIGProfesseur ordinaire des Sciences M. Nicolas JEQUIERAdministratives et ancien Professeur a I'Universite de LausanneMinisterialdirigent du Ministare Rapporteur du SeminaireFdderale des Affaires Economiques

IbadanJuly 11 - 15,1988

Botswana

Mr. Baledzi Gaolathe Mr. A.L. ThoahilanePermanent Secretary Principal SecretaryMinistry of Finance and Ministry of FinanceDevelopment Planning

LiberiaMr. H.C.L. HermansGovemor Hon. Charles E. CollinsBank of Botswana Deputy Minister for Planning and

PolicyThe Gambia Ministry of Planning and

Economic AffairsDr. J. Ayo Langley MonroviaSecretary General and Head of ServiceOffice of the President Malawi

Mr. Lamin Samateh Hon. L.J. Chimango, M.P.Perrnanent Secretary Minister of FinancePersonnel Management OfficeQuadrangle, Banjul Mr. D.C.W. Kambauwa

Principal Secretary forGhana Administration in the Office of the

President and CabinetMr. S.A. AmoaDeputy Director Mr. J.C.K. MhangoGhana Institute of Management Department of Economicand Public Administration (GIMPA) Planning and DevelopmentAchimota, Ghana Office of the President

and CabinetLesotho

Mr. T.T. Phaiya, M.P.Hon. PJ. Molapo ChairmanMinister of State in the Office Public Accounts Committeeof the Chairman of the Parliament of MalawiMilitary Council

NigeriaMr. A.M. PhakoanaDeputy Principal Secretary Mr. O.A. AdeyemoMinistry Planning DirectorPresidential Advisory Committee National Centre forEconomic and Manpower Development Economic Management and

Administration (NCEMA)

29


Mrs. L. Okunnu ZimbabweDirector GeneralPolitical Department Mr. C. KanyuchiCabinet Office Under-SecretaryTarawa Balewa Square Ministry of FinanceLagos Economic Planning and Development

Mr. M. Omolayole Mrs. M.M. MawemaPresidential Advisory Committee Deputy Permanent SecretaryOffice of the President and Policy and ResearchCommander-in-Chief Office of the President and CabinetDoddan BarracksLagos Mr. N. Nyamambi

Senior EconomistMr. S.C. Opara Reserve Bank of ZimbabweDirectorEconomic and Monitoring Department Special Guests

Cabinet OfficeTarawa Balewa Square Hon. Alhaji Abubakar AlhajiLagos Minister of State for Budget and

PlanningProf. E. Osagie Office of the PresidentDirector of Research Federal Government of NigeriaNigerian Institute of Policy andStrategic Studies (NIPSS) Chief 0. FalaeKuru, Plateau State Secretary to the Federal Government

NigeriaDr. A.A. OwosekunDirector ModeratorPolicy Analysis and ResearchDepartment Mr. G. de LusignanNigerian Institute of Economic Deputy Directorand Social Research Economic Development Institute

World BankProf. Oye OyediranMember Seminar CodirectorsConstituent AssemblyDepartment of Political Science Mr. L. AdamolekunUniversity of Lagos Coordination and DevelopmentAkoka, Lagos Administration Division

Economic Development InstituteSomalia

Dr. E.C. NdekwuMr. Said Ahmed Yusuf Research Director and DirectorDirector General Economic Development DepartmentSomali Development Bank Nigerian Institute of Social and

Economic Research


Resource Person

Prof. A.O. PhillipsDirector GeneralNigerian Institute for Socialand Economic Research

The World Bank

Mme. M. AlexanderDivision ChiefPublic Sector Management DivisionAfrica Regional Office

Mr. T. HussainResident RepresentativeBank MissionLagos

Mr. H.K. KimInstitutional Development Adviser

Berlin IIIDecember 14-16, 1988

The Gambia Niger

Mr. Lamin SAMATEH M. Mohanadou ARZIKAPermnanent Secretary Secr6taire GeneralPersonnel Management Office Ministare de la Fonction Publique,

du Travail et de la Formation

Ghana Professionelle

Mr. John NKRUMAH SenegalDirectorOffice of the Provisional M. Moussa N'DOYENational Defense Council Ministre de la Fonction Publique(Public Administration) et du Travail

Cameroon Sierra Leone

M. Joseph OWONA Dr. Abdulai Osman CONTEHMinistre de la Fonction Publique Attomey General and Ministeret du Contr6le de l'Etat of Justice

Madagascar Sudan

M. Aristide VELOMPANAHY Mr. Abdel Karim YACOUBSecrdtaire Gendral Director-GeneralMinistare de l'Enseignement Sudan Academy for AdministrativeSuperieur Sciences

Mali Tanzania

Mime. Sy Lalla DIALLO Mr. Bemard MULOKOZIMinistre de l'Emploi et de la Principal SecretaryFonction Publique Ministry of Labor and Manpower

DevelopmentMauritania

M. Mohamed Ould MEDANI UgandaSecretaire General Mr. Henry Joseph OBBOMinistere de la Fonction Publique, Permanent Secretarydu Travail, de la Jeunesse Head of Civil Serviceet des Sports

Trainers

Mr. Samuel Kwame AWUAH Mr. Kandolo wa KASHALAActing Deputy Director for Research Director-GeneralGhana Institute of Management and Centre for Training in the TechniquesPublic Administration of DevelopmentAchimota, Ghana Kinshasa, Zaire

32


Resource Persons

Prof. Nicolas JEQUIER Prof. Klaus KONIGProfessor at the University of ProfessorLausanne - Institute for Studies in Former Director General, Office ofPublic Administration the Federal ChancellorLausanne, Switzerland Post-Graduate School of Administrative

SciencesProf. Herbert KONIG Speyer, FRGProfessor of Administrative Sciences,former Assistant Secretary General of Prof. Adedotun PHILLIPSthe OECD, Director-GeneralDirector of the Institute for Nigerian Institute of Social andInnovative Development Economic ResearchBonn, FRG Ibadan, Nigeria

Mr. Albrecht STOCKMAYERSr. AdvisorDeutsche Gesellschaft fur TechnischeZusammenarbeit (GTZ) GmbHEschborn, FRG

ECA Representative

Mr. Sadig RASHEEDDirectorPublic Administration, HumanResources and Social DevelopmentDivisionEconomic Commission for Africa (ECA)Addis Ababa, Ethiopia

World Bank/Economic Development Institute

Mr. Ladipo ADAMOLEKUN Mr. Guy de LUSIGNANSenior Public Sector Management Deputy DirectorSpecialist Economic Development Institute/IBRDEconomic Development Institute/IBRD Moderator of the WorkshopCo-Director of the Workshop

Mr. Mustapha FALLMrs. Myma ALEXANDER Regional Policy AdvisorDivision Chief Abidjan, C6te d'IvoirePublic Sector Management, AfricanRegion, IBRD


Mr. Epraim KAMUNTU Mr. Ragaa MAKHARITAProfessor at Makerere University Senior Public Sector ManagementRegional Policy Advisor SpecialistWorld Bank Economic Development Institute/IBRDNairobi, Kenya

Mr. Robert LACEYDivision ChiefEconomic Development Institute/IBRD

German Foundation for International Development

Mr. Joachim KRELL Mr. Joachim MULLERDirector of the Public Administration Section HeadPromotion Centre/DSE Public Administration PromotionCo-Director of the Workshop Centre/DSE

Annex B

Seminar Programs

Berlin INovember 10-14, 1986

Dimanche 9 novembre13 h Ddjeuner

14h30- 17h Tour de ville

17 h Reunion informelle

19 h Diner

Lundi 10 novembre7 h 30 - 9 h 30 Petit d6jeuner

10 h - 11 h Seance d'ouverture

11 h - l1 h 30 Pause - photos

II h 30 - 13 h Discussion du programmeM. GUY DE LUSIGNANM. JOACHIM KRELL

13 h D6jeuner

14 h 30 - 15 h 30 Probl6matique de I'ajustementstructurel dconomique et landcessite de l'ajustement institutionnelM. XAVIER DE LARENAUDIERE

15h30- 16h Pausecafe

16 h - 17 h Discussion

18 h 30 Diner

Mardi 11 novembre7 h 30 -9 h Petit d6jeuner

9 h - 10 h 30 Rapports de paysM. GUY DE LUSIGNAN

10 h 30 - 11 h Pause caf6

11 h - 12 h 30 Discussion

13 h Dejeuner

14 h 30 - 15 h 30 Etude de cas: La r6forme administrativeen Cote-d'IvoireM. JEAN-JACQUESBEC1IO

35


Ministre de la fonction publiqueCote-d'Ivoire

15h30- 16h Pause caf6

16 h- 17 h Discussion

19 h Reception offerte par leVice-President du Conseild'Administration de la DSE,M. GUNTERSCHLUCKEBIER,a la Villa Borsig

Mercredi 12 novembre

7 h 30 - 9 h Petit dejeuner

9 h - 10 h 30 Etude de cas: La r6forme administrativeen Argentine: problemes et strategieM. ENRIQUEGROISMANVice Ministre, fonction publique,Argentine

10 h 30 - 11 h Pause cafe

11 h - 12 h 30 Discussion

13 h Dejeuner

14h30- 15h30 La reforme administrative en R6publiquefederale d'AllemagneM. HERBERT KONIG

15 h 30 - 16 h Pausecafe

16h- 17h Discussion

18 h Reception offerte par le Senateuraux Affaires Interieures,M. WILHELM KEWENIG,AU RESTAURANT DEL'HOTEL "Palace"(Europa-Center)

Jeudi 13 novembre

7 h 30 - 9 h Petit d6jeuner

9 h - 10 h 30 Etude de cas: Ajustementinstitutionnelen TerrafrieM. RAGAAMAKHARITA

Travail en groupes

10 h 30 -11 h Pause cafe

I1 h - 12 h 30 Travail en groupes

13 h Dejeuner

14 h 30 - 15 h 30 Presentation des rapports


15 h 30 - 16 h Pause ca

16 h - 17 h Discussion

19 h 30 Ballet "Cinderella" a I'Op6rade Berlin

22 h env. Diner offert par le DirecteurAdjoint de l'IDEM. GUY DE LUSIGNAN,a l'hotel "Steigenberger"

Vendredi 14 novembre

7 h 30 - 9 h Petit ddjeuner

9 h - 10 h 30 Synthese du Sdminaire:

- Recommandations desgroupes: suite a donner auSeminaire- Role des pays- R6le de la BanqueMondiale-R6le de la DSEM. GUY DE LUSIGNANM. JOACHIM KRELL


11 h - 12 h 30 Synthese du S6minaire(cont.)

13 h Dejeuner

14h30- 15h30 Evaluation du Seminaire


16h- 17h Seance de cl6ture

18 h 30 Dimer

Samedi 15 novembreDepart des participants

Dimanche 16 novembre

Addis AbabaJuly 6 - 10, 1987

Monday July 6, 1987

Morning

Registration 09:30 - 10:00Opening Session 10:00 - 11:00

-Keynote Address by Prof. Adebayo Adedeji, Executive Secretary- Statement by the Representative of the World Bank/EDI,Mr. de Lusignan

Coffee Break: 11:00- 11:15

SESSION 1: 11:15 - 13:00

- Moderator's Opening Remarks (Guy de Lusignan)- Participants' self-introduction- Comments by the participants on the Keynote Address, Openingremarks and general objectives of the seminar

Afternoon

SESSION 2: 15:00 - 16:30

A. Presentations:

-Brief overview of background papers/reading materials-Redynamizing Africa's Administraive/Managerial Systems andInstitutions for Economic Recovery and Development (ECA paper)

B. General Debate

Coffee Break: 16:30 - 16:45

SESSION 3: 16:45 - 18:00

A. Presentations:

- Determining National Philosophy, Goals and Strategies:The Nigerian Experience (A. Phillips)

38

Development Management in Susb-Saharan Africa 39

B. General Debate

Evening: 18:30 - 20:30

(Reception: Hilton)

Tuesday, July 7, 1987

Morning

SESSION 4: 9:30 - 13.00

- Case Study I: Institutional Adjustment in Terrafrie (L. de Merode)- General Discussion

CoffeeBreak: 11:00 - 11:15

Afternoon 15:00 - 17:30

SESSION 5: 15:00 - 17:30

-Presentation: Institutional Arrangements for National DevelopmentPolicies (A. Phillilps)- General Discussion


Wednesday, July 8, 1987

Morning

SESSION6: 9:30- 13:00

-Discussion groups on selected major themes arising from previous discussions

Coffee Break: 11:00- 11:15

AfternoonFREE

Thursday, July 9, 1987

Morning

SESSION 7: 10:00 - 13:00


-Presentation and discussion of the reports of the discussiongroups


Afternoon

SESSION 8: 15:00 - 17:30

- General discussion of the issues raised at the seminar since its first day(participants will relate these issues to their national experiences)


Evening: 19:00 -Closing Dinner

(Unity House, Ghion Hotel)

Friday, July 10, 1987

Morning

SESSION 9: 09:30- 12:30

Overview of seminar, major finding and conclusionsEvaluation of the seminar

Coffee break: 10:45 - 11:00

AfternoonFREE/DEPARTURE

Berlin IINovember 16-20, 1987

Samedi 14 novembre: Anrivee des participants

Dimanche 15 novembre: Arriv6e des participants

13hOO Dejeuner

14h30 - 17hOO Tour de ville

17hOO Reunion informelle

19hOO Diner

Lundi 16 novembre:

07h30 - 09h30 Petit d6jouner

lOhOO - llhOO Seance d'ouverture- M. P. Kevenh6rster (DSE)- M. P. Conen (Secrdtaire d'Etat)- M. G. F. von Groll- M. G. de Lusignan (IDE/IBRD)

IlhOO - 11h30 Pause. Photos

llh30- 13hOO Presentation du programmeM. Guy de LusignanM. Joachim Krell

Commentaires

13hOO Ddjeuner

14h30 - 15h45 Perspectives allemandes sur la gestiondu developpement dans les pays en voiede developpementM. Fliedner (Ministere Federale de laCooperation Economique)

Discussion

15h45 - 16hOO Pause cafd

41


16hOO -17h45 Formulation des politiques nationalesde developpement: Experience duB6ninRobert Dossou

Discussion

18hOO Rdception offerte par le President duConseil d'Administration de la DSE,M. Hans-Gunter Hoppe, MdBa la Villa Borsig

Mardi 17 novembre:

07h30 -08h30 Petit ddjeuner

09hOO -12h45 Compte rendu du rapporteurLes politiques d'ajustement en Afriquesub-saharienneM. Xavier de la Renaudiere

Discussion

lOh30 -lOh45 Pause caf6

1Oh45 - 12h30 Etude de cas: Ajustement institutionnelen Terrafie,M. Louis de Merode

Discussion

13hOO Dejeuner

14h30 -15hl5 Etude de cas: discussion (suite)

15hl5 -17hlO Coordination des politiques nationalesde developpementM. Robert DossouM. Callixte Nzabonimana

Discussion

lSh45 -16hOO Pause cafe

17h15 Ddpart


18hOO Reception offerte par le Sdnateur al'int6rieur, M. Wilhelm Kewenig aurestaurant de l'h6tel "Palace"(Europa Center)

20h30 env. Retour a la Villa Borsig

Mercredi 18 novembre:

07h30 - 08h30 Petit d6jeuner

09hOO - 09h45 Compte rendu du rapporteurDiscussion sur la coordination despolitiques nationales de d6veloppement(suite)

09h45 - lOh30 Travaux en petits groupes de discussion

1. Analyse des politiques etrdhabilitation de la fonctionstrategique

2. Coordination des politiquesnationales de developpement

3. (a) Gestion du personnel de l'Etat

(b) Comment amdiorer l'efficacitMde l'administration publique

lOh30 - lOh45 Pause cafe

l0h45 - 13hOO Travaux en petits groupes (suite)

13hOO Dejeuner

14h40 - l5h45 Travaux en petits groupes (suite)

15h45 - 16hOO Pause cafe

16hOO - 17h30 Rapports des groupes de discussion enpleniere

18hOO "Snack"

l9hl5 Depart

20hOO Ballet "Lichtknall" a l'Opdra de Berlin


22hOO env. Souper offert par le Directeur Adjointde l'IDE/BIRD - M. Guy de Lusignana l'h6tel "Steigenberger"

24hOO env. Retour a la Villa Borsig

Jeudi 19 novembre:

07h30 - 08h30 Petit ddjeuner

09hl5 - lOh40 Compte rendu du rapporteurDebat gdndral sur les rapports desgroupes de discussion et discussion dequelques expdriences nationales

lOh45- lhilO Pause cafe

llhlO - 13hlO Remarques de M. I. Serageldin,Directeur, Region Afrique, BIRD

D6bat gdneral sur les rapports (suite)

13hlO Dejeuner

15hOO SpecialReouverture de la Villa Borsig enpr6sence du Ministre federal de lacooperation deconomique, M. Hans Kleinet du Maire-Gouverneur de Berlin(ouest), M. Eberhard Diepgen

18hOO Buffet

Vendredi 20 novembre:

07h30 - 08h30 Petit ddjeuner

09hOO - lOh5O Synthese du Seminaire: RapporteurConclusions et recommandationsM. Guy de LusignanM. Joachim Krell

10hSO - llhlO Pause cafe

lOh45 - 12hOO Evaluation du seminaire

12h30 Dejeuner et d6part des participants

Samedi 21 novembre:Depart des participants

Dimanche 22 novembre:

Annex CFollow-up Actions Recommended

by Country Participant Teams

Botswana

1. To intensify public/private sector cooperation in promoting development by strengthening theexisting consultative machinery. Private sector development will be taken seriously.

2. To improve policy analysis capacity. Greater attention will be paid to in-house research withinthe civil service. It will be recommended that government should support policy research within theuniversity and utilize the studies and reports emanating from research work.

The Gambia

1. Recognition of private sector development as an area of emphasis. Special attention will be paidto public/private sector coordination of national development policies.

2. To continue with the implementation of civil service reform and seek to improve theenvironment of the reform such that increased number of people accept its salient features. Efforts willbe made to embark on a review of the impact of the reform.

3. EDI and NISER should further cooperate to assist in monitoring the progress of SAPs and theimplementation of institutional reforms.

Ghana

1. The Ghana Institute of Management and Public Administration (GIMPA) will seek to strengthenits research and consultancy activities focused on development management. GIMPA will request forEDI assistance in this regard.

2. GIMPA will endeavor to organize a national SPS on development management, using a modifiedversion of the Ibadan SPS. This exercise will be a follow-up to a top level seminar on privatizationorganized by GIMPA early in 1988. EDI assistance will be appreciated.

Lesotho

1. Further exploration of how best to ensure effective coordination of planning and finance.

2. Increased interest in decentralized development with emphasis on popular participation.

3. To promote public service training at the national and subregional levels. To explore possibilityof cooperating with other SADCC members to organize Ibadan-style SPS on DevelopmentManagement.

45


Liberia

1. To emphasize the idea of public and private sectors as partners in progress and intensify actionsalready embarked upon in this regard.

2. To continue with ongoing civil service reform.

3. Increased involvement of interest groups and the private sector in the formulation andimplementation of development policies.

Nigeria

1. Emphasis on manpower training, especially at the middle and top management levels.

2. Exploration of mechanisms for strengthening coordination among core ministries, line agencies,and parastatals.

Somalia

1. Interest in promoting policy analysis capacity building. Some actions already embarked upon inthis area will be intensified.

2. Exploration of mechanisms for strengthening coordination among core ministries, line agencies,and parastatals.

3. To proceed with civil service reform with special emphasis on reward system and incentives.

Zimbabwe

1. National development planning agency to strenthen its monitoring capability with a view toensuring effective implementation of development plans and programs.

2. Restructuring of parastatals with a view to reducing government subsidies.

3. To communicate some of the lessons of experience in implementing civil service reform shared atthe seminar to the Public Review Commission currently at work.

Annex DBackground Reading Materials

Adamolekun, L. "Public Sector Management in Sub-Saharan Africa: The World Bank Experience."Economic Development Institute of the World Bank, Informal Document, June 1987.

"Africa's Submission to the Special Session of the United Nations General Assembly on Africa'sEconomic and Social Crisis." Document made available by the ECA in Addis Ababa

Brunet, J. and R. Makharita. "Institutional Adjustment in Terrafrie: Case Study." Economic DevelopmentInstitute of the World Bank, Informal Document, July 1986.

de la Renaudier, X. "Adjustment Policies in Sub-Saharan Africa and their Impact on the InstitutionalDevelopment Process." November 1986.

de Lusignan, G. "EDI Impact 30: A Review of EDI's Purposes, Activities, and Achievements." Reprintedfrom Finance and Development, June 1986, pp. 28-3 1.

Development Policy Analysis. EDI Policy Seminar Report Series, Report No. 4, Washington D.C.Economic Development Institute of the World Bank, March 1986.

Economic Commission for Africa (ECA), "Re-dynamizing Africa's Administrative/Managerial Systems andInstitutions for Economic Recovery and Development." July 1987.

"Institutional Arrangements for Policy Analysis and Development," Excerpt from United Nations,Methodologies of Policy Analysis and Development: Some Major Issues New York, UnitedNations Publication, 1981.

"Institutional Weakness: A Roadblock to Development" and "Wages and Salaries," Excerpts from A. Israel,Institutional Development, Incentives to Performance. Baltimore, Johns Hopkins UniversityPress, 1987, pp. 1-7, 126-132.

"Integration of Economic Policy into the Political Process and the Use of Expatriates in Senior PolicyPositions," Excerpt from C. Harvey, Successful Macroeconomic Adjustment in ThreeDeveloping Countries: Botswana, Malawi and Papua New Guinea. Economic DevelopmentInstitute of the World Bank, July 1987.

Kim, H-K. "Capacity Building in Policy Analysis in Developing Countries: Issues and Options."Economic Development Institute of the World Bank, Informal Document, July 1988.

Lamb, G. Managing Economic Policy Change, Institutional Dimensions. World Bank DiscussionPapers No. 14, Washington D.C., 1987.

47


Phillips, A. "Reforming the Nigerian Federal Civil Service," with a Postscript on "Coordinating NationalDevelopment Policies: Sketch of the Nigerian Case." Course Note Prepared for the EconomicDevelopment Institute, July 1987.

--------- "Preliminary Policy Impact Assessment of the 1988 Reforms of the Nigerian Civil Service."Course Note Prepared for the Economic Development Institute, July 1988.

Recent Economic Reforms in Africa: A Preliminary Political Economy Perspective. EDI PolicySeminar Report Series, Report No. 8, Washington D.C., Economic Development Institute of theWorld Bank, September 1987.

"Recommendations for Enhancing the Contribution of Technical Assistance Projects to Policy Formulationand Institutional Development," Excerpts from S.B. Kjellstrom and A-F d'Almeida, InstitutionalDevelopment and Technical Assistance in Macroeconomic Policy Formulation. A Case Studyof Togo. Washington D.C., World Bank Discussion Paper, No. 13, 1987.

"The Case for a 'Think Tank' in Sierra Leone," Excerpt form "Siera Leone Special, Politics: A Matter ofDiscipline," in West Africa, (London), February 15, 1988, pp. 260-261.

Triche, T. "Institutional Development in Macroeconomic and Financial Policy Making andImplementation." The World Bank, Informal Document, December 1985.

United Nations. Government Budgeting in Developing Countries. New York, United NationsPublication, 1986.

"United Nations's Program of Action for African Economic Recovery and Development, 1986-1990."Document made available by the ECA in Addis Ababa.

United Nations. Reforming Civil Service Systems for Development. Report of an InternationalSeminar held at Beijing, People's Republic of China, August 1985.

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-I

EDI Policy Seminar Reports make available summaries of EDI policy seminars that are of

particular interest and importance to readers concerned with public affairs. The reports seek

to convey the essence of the discussions and to bring out the principal areas of agreement or

disagreement among the participants, who represent a wide range of governmental, academic,

and professional backgrounds.

WORLD BANK PUBLICATIONS OF RELATED INTEREST

Poverty, Adjustment, and Growth in Africa.Ismail Serageldin. In English and French. m

Managing Public Expenditure: An Evolving World Bank Perspective.Robert M. Lacey. World Bank Discussion Paper 56.

Educating Managers for Business and Government: A Review of International 0

Experience.Samuel Paul, John C. Ickis, and Jacob Levitsky. World Bank Discussion Paper 54.

Africa's Adjustment and Growth in the 1980s.The World Bank and the UNDP. In English and French. Q

Industrial Adjustment in Sub-Saharan Africa.Gerald M. Meier and William F. Steel, editors. Oxford University Press.

Tax Policy in Sub-Saharan Africa: A Framework for Analysis.Zmarak Shalizi and Lyn Squire. World Bank Policy & Research Series 2. c

Successful Development in Africa: Case Studies of Projects, Programs, and

Policies.EDI Development Policy Case Series, Analytical Case Study 1. >

Institutional Development: Incentives to Performance.Arturo Israel. The Johns Hopkins University Press.

Managing Economic Policy Change: Institutional Dimensions.Geoffrey Lamb. World Bank Discussion Paper 14.

Institutional Development and Technical Assistance in Macroeconomic Policy

Formulation: A Case Study of Togo.Sven B. Kjellstrom and Ayite-Fily d'Almeida. World Bank Discussion Paper 13.

Issues in Development Management in Sub-Saharan...

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