8/2/2019 Capacity Development Assistance to Lao PDR
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OED
Learning Curves
Operations Evaluation Department
Asian Development Bank
6 ADB Avenue, Mandaluyong City, 1550 Metro Manila,
Philippines
Tel +63 2 632 4847; Fax +63 2 636 2163; [email protected] ; ww
w.adb.org/ evaluation/
CapacityDevelopment
AssistancetoLaoPDR
May2007
Capacitydevelopmentistheprocessbywhichindividuals,groups,organizations,andcountriesdevelop,enhance,andorganizetheirsystems,resources,andknowledgeall
reflectedintheirabilities(individuallyandcollectively)toperformfunctions,solveproblems,
andsetandachieveobjectives.
CapacitydevelopmenthasbeenessentialtothedevelopmentagendaoftheLaoPeoplesDemocraticRepublicandanimportantpartofassistancefromtheAsianDevelopmentBank
(ADB).It
is
taking
place
in
the
context
of
limited
human
resources,
acontinuously
changing
organizationallandscape,anonlyslowlyreformingpublicadministration,parallelprocesses
ofpoliticalandadministrativedecisionmaking,andminimalfinancialresourcesfor
recurrentexpenditure.Theseconditionsillustratethecentralneedfordevelopingcapacities,
butalsoconstituteparametersthatadverselyaffecttheprocess.
Background
Capacitydevelopmentconstraintsvaryfrom
countrytocountry.Themostprominentfactorsthat
affectopportunitiesandoutcomesofcapacity
developmentassistance
to
the
Lao
People
sDemocratic
Republic(LaoPDR)includehistory(notablytheperiod
ofpoliticalturbulencethatensuedafterthecolonialrule
ofFrancecametoanendandinwhichthewar
involvingVietNamandtheUnitedStatesofAmerica
affectedtheLaoPDR),theunevendirectionand
impetusoftheNewEconomicMechanismadoptedin
1986,theweakhumanresourcebase,lackofincentives
forgoodperformance,andshortageoffinance.
TheimportanceofcapacitydevelopmentinADBs
programisillustratedinsuccessivecountrystrategies
andprograms,eachofwhichhaditascentraltheme.In
2004,theOperationsEvaluationDepartmentconducted
aSpecialEvaluationStudyonCapacityDevelopment
AssistanceoftheAsianDevelopmentBanktotheLao
PeoplesDemocraticRepublic.1Thestudywas
designedtoassesstheeffectivenessofdifferent
approachestocapacitydevelopment,toidentifyfactors
thataffected(positivelyornegatively)capacity
developmentoutcomes,andthusrecommend
improvementsforfutureoperations.
SummaryofFindings
Dividingthecapacitydevelopmentassistance
processintothreephasesdiagnostic,design,and
implementationthestudyfoundthattheprocess
sufferedseveralweaknesses.Whilealargenumberof
staffingovernmentagencieshadmetwithdiagnostic
teams,theirparticipationhadbeenlimitedtoproviding
dataratherthanparticipatinginananalyticalprocessto
identifykeyproblemsandrelevantsolutions.The
qualityofdiagnosticsvariedacrosssectorsandprojects,
butgenerallylackedanalyticaldepthandhadledto
ratherbroadstatementsaboutcapacityweaknessesand
theircauses.Acapacitydevelopmentstrategywas
developedforonesector(urbandevelopment),but
otherwiseassistancewasreactivetoevolvingneeds.
Capacitydevelopmentobjectiveshadnotbeenarticulatedwell,andanticipatedoutcomeshadnotbeen
statedintermsthatwouldfacilitatetheirfocusand
measurement.Implementation planshadconcentrated
onprojectinputs,i.e.,trainingandconsultants,rather
thanonorganizationalchangesthatcouldbesustained.
Implementation hadsufferedfrom(i)lackofstaffand
resources;(ii)amechanisticadoptionofnewsystems
withoutanunderstandingoftheirpurpose,thus
renderingsystemsineffective;and(iii)acommon,but
http://www.adb.org/poverty/capacity-development.asphttp://www.adb.org/poverty/capacity-development.asphttp://www.adb.org/poverty/capacity-development.asphttp://www.adb.org/LaoPDR/default.asphttp://www.adb.org/LaoPDR/default.asphttp://www.adb.org/LaoPDR/default.asphttp://www.adb.org/LaoPDR/default.asphttp://www.adb.org/LaoPDR/default.asphttp://www.adb.org/LaoPDR/default.asphttp://www.adb.org/LaoPDR/default.asphttp://www.adb.org/LaoPDR/default.asphttp://www.adb.org/LaoPDR/default.asphttp://en.wikipedia.org/wiki/Economy_of_Laoshttp://en.wikipedia.org/wiki/Economy_of_Laoshttp://en.wikipedia.org/wiki/Economy_of_Laoshttp://en.wikipedia.org/wiki/Economy_of_Laoshttp://en.wikipedia.org/wiki/Economy_of_Laoshttp://www.adb.org/Documents/CSPs/LAO/2006/default.asphttp://www.adb.org/Documents/CSPs/LAO/2006/default.asphttp://www.adb.org/Documents/CSPs/LAO/2006/default.asphttp://www.adb.org/Documents/CSPs/LAO/2006/default.asphttp://www.adb.org/Documents/CSPs/LAO/2006/default.asphttp://www.adb.org/Documents/CSPs/LAO/2006/default.asphttp://www.adb.org/Documents/CSPs/LAO/2006/default.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/Reports/Evaluation/sst-lao-2004-03/ses-cda-lao.asphttp://www.adb.org/Documents/CSPs/LAO/2006/default.asphttp://www.adb.org/Documents/CSPs/LAO/2006/default.asphttp://en.wikipedia.org/wiki/Economy_of_Laoshttp://www.adb.org/LaoPDR/default.asphttp://www.adb.org/LaoPDR/default.asphttp://www.adb.org/poverty/capacity-development.asp
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illdocumented,practiceofcapacitysubstitution.The
lattermeantthatcapacitydevelopmentresourceshad
beenusedinplaceoflocalones,intheabsenceofwhich
capacitiescouldnotbedevelopedorsustained.While
thedifferentapproachesusedineachsectorhad
appearedrelevantandeffectiveintheircontext,the
overallimpactofcommunitydevelopmentassistance
hadbeenscattered.Thehighlevelofcontinuingcommunity
developmentassistanceandtheselfassessmentsof
currentstrengthsandweakness(undertakenaspartof
theevaluation)indicatedthatlocalorganizationswere
notyetsufficientlydevelopedtofunctionwithout
externalassistance.Areasinwhichcapacitieswere
developedhadnotbeenwelldocumented,which
impededeffortstodrawsystematiclessonsfromthe
experience.Weakresultscouldbeexplainedasfollows:
Constraints.Humanresourceweaknesses,staffing
and
remuneration
policies
and
practices,
and
financial
constraintsonthepartoftheLaoPDRseriouslyaffect
thewayinwhichcapacitydevelopmentassistanceis
perceivedandused(mostlyascapacitysubstitution).
Process.Weakdiagnosticsmeantthatnoclear
understandingexistedoftheproblemsthatneededto
beaddressed,norwasconsensusandownershipbuilt
aroundthesuggestedsolutions.Thedesignofcapacity
developmentassistancesufferedasaconsequence:
objectiveswerenotarticulatedwellandanticipated
outcomesnotspecified.Asaresult,implementation
focusedondeliveringinputsandcarryingoutactivities,
oftenusingprojectinputstosubstituteforlocal
resourcesratherthandevelopingcapacities.
Scope.Capacitydevelopmentisoftenequatedwith
trainingorprovisionofconsultingservices.Thelackof
aframeworkrecognizingcapacitydevelopmentneeds
intheoperatingenvironmentoforganizationsandfor
organizationaldevelopmentaffectedtheapproachand
resultsthatcapacitydevelopmentassistancehadhad.
Individualcapacitydevelopmentactivitieswere
scatteredratherthansystematicallystructuredand
sequenced,whichaffectedtheextenttowhichADB
assistancehadanimpactoncapacitiesforsectorandpublicresourcemanagement.Fundamentalissuesof
publicsectormanagement,includinghumanresource
developmentandfinancialmanagement,hadnotbeen
addressed.
Recommendations
ADBshoulddevelopdiagnostictoolsandapproachesandrequireitsconsultantstousethese
inpreparationforallcapacitydevelopment
assistance.
ADBshoulddevelopdesignstandardsandprinciplesforcapacitydevelopmentprojectsor
components,andapplytheserigorously.
ADBshoulddevelopconceptsandapproachesforcapacity
development
implementation
plans
that
shouldbecomepartofallcapacitydevelopment
designdocumentationandbeusedtomanage
implementation.
Feedback
ADBManagementsResponseagreedthatamore
systematicapproachwasneededtoimprovethe
effectivenessofADBsassistanceforcapacity
development.Tomainstreamcapacitydevelopment
intoADBsoperations,ADBsManagementhad
establishedaworkinggrouponcapacitydevelopment
inApril2004.Theworkinggrouphadincorporatedthe
recommendationsofthestudy.Inaddition,therevised
PovertyReductionStrategyapprovedinJuly2004
includedcapacitydevelopmentasathematicpriority.
Theissuesraisedinthestudywouldbeaddressedin
thenextcountrystrategyandprogramforLaoPDR.
TheChairsSummaryoftheDevelopment
EffectivenessCommitteeDiscussionsconsideredthe
findingsofthestudyofhighimportance.The
Committeealsodeemedthefindingstobeuniversally
applicabletoothercountriestacklingcapacity
development.Itendorsedthelessonslearned,keyissues,andrecommendationsforconsiderationin
developmentofADBsfuturecapacitydevelopment
assistance.SomeCommitteemembersconsideredthat
thestudypointedtoadeficiencyinprofessionaland
technicalmanagementinADBbecausenecessary
adjustmentsandcorrectionscouldhavebeenmade
eitheratdesignorimplementationstages.Questionsof
internalaccountabilitymighthavebeenaddressedby
thestudy.WhileacknowledgingADBManagements
Response,someCommitteemembersthoughtitwas
tooopen
ended
in
delegating
the
proposal
of
actions
to
astaffworkinggroup.
1 2004.ADB.SpecialEvaluationStudyonCapacityDevelopment
AssistanceoftheAsianDevelopmentBanktotheLaoPeoples
DemocraticRepublic.Manila.Available:
http://www.adb.org/Documents/Reports/Evaluation/sst
lao200403/sescdalao.pdf
Learning Curves available @ ww w.adb.org/ evaluation/
Team Leader: Caroline Heider; Tel +63 2 632 4133;
[email protected]
http://www.adb.org/Evaluation/Management-Response/SESs/MR-SES-LAO-CapDev.pdfhttp://www.adb.org/Evaluation/Management-Response/SESs/MR-SES-LAO-CapDev.pdfhttp://www.adb.org/Evaluation/Management-Response/SESs/MR-SES-LAO-CapDev.pdfhttp://www.adb.org/Evaluation/Management-Response/SESs/MR-SES-LAO-CapDev.pdfhttp://www.adb.org/Evaluation/Management-Response/SESs/MR-SES-LAO-CapDev.pdfhttp://www.adb.org/Evaluation/Management-Response/SESs/MR-SES-LAO-CapDev.pdfhttp://www.adb.org/Evaluation/Management-Response/SESs/MR-SES-LAO-CapDev.pdfhttp://www.adb.org/Documents/Policies/Poverty_Reduction/2004/prs-2004.pdfhttp://www.adb.org/Documents/Policies/Poverty_Reduction/2004/prs-2004.pdfhttp://www.adb.org/Documents/Policies/Poverty_Reduction/2004/prs-2004.pdfhttp://www.adb.org/Documents/Policies/Poverty_Reduction/2004/prs-2004.pdfhttp://www.adb.org/Documents/Policies/Poverty_Reduction/2004/prs-2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/evaluation/http://www.adb.org/evaluation/http://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/BOD/dec/DEC-ChairSum-29Sept2004.pdfhttp://www.adb.org/Documents/Policies/Poverty_Reduction/2004/prs-2004.pdfhttp://www.adb.org/Evaluation/Management-Response/SESs/MR-SES-LAO-CapDev.pdf
