Today was one of those days that put complexity and the real deep work of development center stage. I am reading an excellent piece of research and conceptual thinking about capacity building. It is dense and refers to disciplines and philosophies that are hardly know here, except where carried in from the outside by consultants who may or may not be good at making the stuff digestible.
On page 19 of the Capacity, Change and Performance Study report (by Heather Baser and Peter Morgan, European Centre for Development Policy Management, April 2008) a table compares assumptions in different planning approaches, grouping them in two categories: traditional planning and complex adaptive systems. The rubrics are: source and nature of direction, objectives, role of variables, focus of attention, sense of structure, shadow system, measures of success, paradox, view on planning, attitude towards diversity and conflict, leadership, control, history, external interventions, vision and the act of planning itself, point of intervention, reaction to uncertainty and effectiveness.
I checked my own assumptions against those in the table and found myself squarely in the traditional column. A humbling experience for someone who, at least at a philosophical level, thought herself conversant with the complex adaptive systems approach. When I had to look at my practices I was far off the mark.
The study is not an easy read. Just forwarding the large file to colleagues is not a realistic option. This is after all not a reading culture and if it is dense for me, I can’t even begin to imagine how daunting it would be for others not familiar with the systems thinking and complex adaptive systems literature.
This is one of those rare moments when I long to be at headquarters, where this sort of intellectual exercise is not considered a luxury and acknowledged as critical to informing our work.
In the middle of all this pondering we had a meeting about what seemed like a simple request from USAID about 8 months ago: to order medical equipment for 500 health facilities. We tried to wriggle out of the assignment because some of my colleagues knew how complex and how time consuming this was. I had no idea. Now, 8 months later we are just beginning to scratch the surface. If I didn’t know that procurement is at the heart of much development assistance, I do know that now and how complex it really is.
There are cultural habits that leave new equipment tightly wrapped in its original packaging because the boss says so, leaving me guessing why this is such a common practice (the more seasoned folks can tell exactly why).
There are pragmatic and bureaucratic reasons: if it doesn’t leave the storage room it can always be accounted for and no one can accuse the storekeeper of stealing. [Steve told us a story about a guard who buried a broken chair to avoid accusations that he had stolen the chair. His son was there to witness so he could unearth it in case the accusation happened after his death.]
There are unethical business practices that lead vendors to promise one quality and deliver less quality for the same price. There is a scarcity mindset that leads health facilities to ask for the moon, blurring the lines between what is needed and what is wanted; one never knows when the source of all these goodies dry up. Or there is simple greed – wanting ever more. And finally there are managerial variables such as number, price, quality, time to delivery, storage, etc., and technical variables: specifications and quality.
We ended up hiring someone to look at all of this. He is a surgeon who knows Afghanistan’s health systems, structures and practices well. He explained to us this morning what a minefield this is and all the ways that we can taint our reputation with the many stakeholder groups that will hold us accountable, each holding us to a different standard (cost, quality, time to delivery, appropriateness, serviceability, etc.).
And while we discussed this millions of dollars worth of stuff, the ground shuddered from the heavy road building equipment outside our office and our eyes watered from the gas leaking from the defective gas burning stove that kept us warm between the chilly concrete walls and floors of the Herat Conference room.
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