Learning from Success

By Joe Bolger

The study contains analyses and recommendations on the approaches to capacity development that work best and the conditions that have been conducive to their success, the unique challenges faced by Pacific developing member countries in addressing capacity constraints, and the implications for future interventions at both the strategic and operational levels.

• Language: English
• Publisher: Asian Development Bank
• Release date: Dec 1, 2008
• ISBN: 9789292571979

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CAPACITY DEVELOPMENT SERIES

PACIFIC CHOICE

Learning from Success

(Financed by the ADB Poverty Reduction Cooperation Fund and the Australian Agency for International Development)

By Joe Bolger

Capacity Development Series

This sub-series is published by the Asian Development Bank to provide the governments of its Pacific developing member countries (PDMCs) with analyses and insights on key issues and lessons learned with respect to capacity development. Cases studied highlight a range of experiences throughout the region by sector, theme and source of external support, revealing approaches to capacity development that work best and the conditions that have been conducive to their success. They also explore the unique challenges faced by PDMCs in addressing capacity constraints as well as some of the opportunities facing governments and the people in the Pacific islands. Among other things, the case studies underline the importance of PDMC leadership, engagement of local partners, strategic attention to long-term capacity issues and effective use of external resources. It is our hope that the findings in these reports will help to guide future capacity building efforts in the Pacific.

© 2008 Asian Development Bank

All rights reserved. Published 2008.

Printed in the Philippines.

Cataloging-In-Publication Data

Publication Stock No. 167208

ISBN 978-971-561-724-6

Cataloging-In-Publication Data

Joe Bolger.

Capacity development in the Pacific: learning from success

Mandaluyong City, Phil.: Asian Development Bank, 2008.

1. Capacity development.     2. Pacific.

I. Asian Development Bank.     II. Australian Agency for International Development

The views expressed in this book are those of the authors and do not necessarily reflect the views and policies of the Australian Agency for International Development (AusAID) and the Asian Development Bank (ADB) or its Board of Governors or the governments they represent.

ADB and AusAID do not guarantee the accuracy of the data included in this publication and accept no responsibility for any consequence of their use.

Use of the term country does not imply any judgment by the authors or ADB and AusAID as to the legal or other status of any territorial entity.

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All artworks are by Demetrio Dela Cruz.

CONTENTS

ABBREVIATIONS

FOREWORD

Donors have invested heavily in strengthening the capacity of Pacific developing member countries (PDMCs) over the past three decades. The results of all this investment have been mixed at best. Most PDMCs are just as heavily reliant today on externally financed technical assistance and training and other means to build capacity as they have ever been.

A review, entitled Governance in the Pacific: Focus for Action 2005–2009, funded by the Asian Development Bank (ADB), concluded that inadequate capacity building, coupled with the loss of senior staff who have management and technical skills, is common in many Pacific DMCs. The ADB review noted that the failure of most Pacific DMCs to train and retain many of their most skilled and motivated people, especially in Polynesia but increasingly in other countries, is a long-standing contributor to concerns over the quality of governance and institutions. Furthermore, according to ADB’s Pacific strategy for 2005–2009, too often, capacity building has been related to the objectives of the project rather than to those of the host organization, or capacity building requirements have been insufficiently analyzed, planned, or coordinated.

The continuing need to build domestic capacity remains important for three key result areas of ADB’s Pacific strategy: (i) establishing an effective institutional framework for developing skills in response to labor market demands; (ii) managing and delivering quality basic social services; and (iii) strengthening capacity of PDMC governments, civil society, and private sector groups to plan and manage for development results.

Despite the historical challenges and shortcomings, public sector capacity has been successfully built and sustained in each of the PDMCs. Central government departments, for example, have built and sustained their capacity to supply improved health and education services. In some PDMCs, state-owned enterprises have strengthened and maintained their capacity to provide efficient and effective services to the public, while independent authorities have been established and have successfully maintained their ability to deliver services. In addition, civil society groups in the region have enhanced their capacity to mobilize communities, advocate reforms, and deliver services to Pacific island communities.

As noted in the cases described in this study, the successes can be attributed to a number of factors, such as strong leadership, effective community participation or demand, solid understanding of the programming context, getting the incentives right, or effective use of technical advisors. However, our understanding of the reasons for success has tended to be project or program specific, or anecdotal, and after decades of external assistance to build capacity in the Pacific, it is time that the Pacific stakeholders and their development partners better understand how capacity can be successfully built and sustained. This study seeks to contribute to that objective.

Capacity development has long been a challenge for PDMCs and something of an enigma for external assistance agencies. A basic problem is, as the author of this report, Joe Bolger, observes, that capacity development in the Pacific can be seen as a prism-like phenomenon that yields different images depending on how you look at it. To capture all perspectives of this prism, the study contracted a series of 20 case studies from 11 countries across the region, prepared primarily by consultants from the Pacific islands. They cover a range of programming experiences—from economic planning, to infrastructure development, health and legal sector reform, civil society enhancement, fisheries, and one regional initiative. The cases include programming funded by various bilateral and multilateral donors.

The study contains analyses and recommendations on the approaches to capacity development that work best and the conditions that have been conducive to their success, the unique challenges faced by PDMCs in addressing capacity constraints, and the implications for future interventions at both the strategic and operational levels.

A separate report, entitled A Framework for Capacity Development in the Pacific Islands, by Michael Heppell, explores the capacity needs and prerequisites for capacity development of critical government agencies in PDMCs. It includes a framework to establish appropriate conditions for future capacity development interventions, and a regional action plan.

I hope that the findings and recommendations contained in these two reports will help guide future capacity building efforts in the Pacific.

Finally, I would like to express my gratitude to the Australian Agency for International Development for cofinancing this initiative and offering valuable technical advice. I would also be remiss if I did not express sincere appreciation for the collaboration of participating PDMCs and other donor agencies without whose cooperation this study would not have been possible.

Sultan Hafeez Rahman

Director General

Pacific Department

ACKNOWLEDGEMENT

The author would like to thank the following people for their support during the research phase and in the preparation of this report. First of all, a nod of gratitude to Steve Pollard, the ADB task manager for this initiative, whose support and guidance throughout was always coupled with a dose of good humor. Thanks also to Melissa Dayrit,, Ophelia Iriberri and Tara Mehretab of ADB’s Pacific department (PARD) for pulling together documentation, organizing meetings and workshops, and otherwise helping to move the process forward. Alexander Pascual for excellent layout. ADB consultant Pete Malvicini’s facilitation of the Sydney writeshop and the Manila retreat also helped to animate the process and keep us on target.

Additional thanks to Mike Heppell for his feedback on the final draft report, to the other consultants who reviewed the individual case studies, Patricia Lyon of AusAID for her wise counsel, and Heather Baser for reviewing a draft report and contributing, in particular, to the content on technical assistance. And a special thanks to Jay Maclean for his patient editing of the final document.

Finally, and most importantly, a special note of appreciation to my Pacific colleagues for their wisdom, insights, hospitality, and friendship. Without them, none of this would have been possible.

As always, any shortcomings or errors are solely the responsibility of the author.

EXECUTIVE SUMMARY

In 2004, the Asian Development Bank (ADB) Board of Directors adopted capacity development (CD) as a thematic priority. ADB staff since developed a medium-term framework and action plan for strengthening assistance for CD in ADB’s developing member countries (DMCs). The action plan calls for ADB-sponsored CD efforts to be more efficient, effective, and demand-driven. More effective CD interventions should contribute to better and more sustainable results by DMC organizations and groups, and ultimately to improved quality and coverage of public services, as well as reduced poverty in the region.

To advance this agenda and better understand CD in the Pacific region, ADB’s Pacific department commissioned a regional study in the latter part of 2006. The study is based on 20 case studies from 11 countries across the region, prepared by Pacific island consultants. This report includes findings and recommendations that have benefited from inputs from an August 2007 capacity development retreat at ADB headquarters. ADB intends to use