SEMINAR ON TRAINING IN POLICY ANALYSIS METHODS TANGIER (Morocco), 6-10 May 1996 REPORT

Transcription

1 AFRICAN TRAINING AND RESEARCH CENTRE IN ADMINISTRATION FOR DEVELOPMENT CAFRAD TANGIER SEMINAR ON TRAINING IN POLICY ANALYSIS METHODS TANGIER (Morocco), 6-10 May 1996 REPORT

2 REPORT OF THE CAFRAD SEMINAR ON TRAINING IN POLICY ANALYSIS METHODS The Seminar on "Training in Policy Analysis Methods" was organized by the African Training and Research Centre in Administration for Development, CAFRAD, at Tangier, Morocco, from 6 to 10 May It was attended by 13 participants from 10 Anglophone countries and two resource persons, one from the United Nations Economic Commission for Africa (ECA) and the other from the Institute of Social Studies (ISS) at the Hague. The objectives of the Seminar were: a. To take stock of policy analysis and decision-making approaches in the participating countries and to identify their respective weaknesses; b. To suggest an alternative methodology and more efficient tools and introduce participants to their use in their respective countries; and c. To facilitate the dissemination of these methods and tools within African administrative training institutions through training of trainers programmes. The Seminar was inaugurated by Mr. Boubker Sqalli Interim Director-General of CAFRAD, who emphasizing the importance of training in Policy Analysis to African countries, observed that though there is no universal formula for policy making on complex problems, there are essential elements in successful policy design which participants of the Seminar may try to establish in their deliberations. The Seminar elected Mr. Alemaheyu Assefa (Ethiopian Management Institute) as Rapporteur of the Seminar. Different sessions in the Seminar were chaired by different participants. The two keynote presentations were made by Professor Claudius A.B. Olowu on "Key Issues in Policy Analysis" and by Dr. Vasant Moharlr on "Methodologies of Public Policy Analysis in Su b-saharan Africa". Also each of the country participants made a presentation of country experiences based on a written paper. The Seminar also benefited from papers used as back(,found documents contributed by Dr. Jide Balogun, Mr. Abdalla Bujra, the Panafrican Institute for Development (PAID) and the European Centre for Development Policy Management (ECDPM). A list of participants and papers presented to the Seminar can be seen in Appendices. After the presentation and discussions on the two keynote papers, the Serru'nar was divided into two groups- Group I on "Key Policy Issues" and Group II on "Methodologies of Policy Analysis". The composition and tasks assigned to each Group can be seen in Appendix

3 111. Each Group had identified a set of issues to deliberate which they did and written reports of their deliberations were presented by their Rapporteurs to the Plenary Session on Thursday, the 9th of May. Based on these reports and discussions thereon, the Rapporteur of the Seminar presented the findings and recommendations of the Seminar to the Plenary Session on Friday the 10th of May 1996 which were adopted. The Seminar ended with a vote of thanks to CAFRAD for this valuable initiative. The main points of each of the Sessions in the Seminar are given subsequently. The keynote presentation of Professor Olowu concentrated on the four issues of relevance and contents of public policy, major problems facing African Countries, institutions and methods of policy analysis and future prospects for improving policy analysis in Africa. Delineating the various stages in the policy process and emphasizing the need for a positive interaction between the four major actors in the process, namely, politicians, professionals, administrators and the scientists, he elaborated on their respect motivation towards policy analysis. In the ensuing discussion, the participants commented on the need for differentiating the roles of different policy actors, between the concepts of subjective and objective rationality, and differentiating between the impact of values of the politicians themselves and the people at large. Responding to the points raised in the discussion, Professor Olowu emphasized the need for sensitizing politicians to policy analysis approaches. In addition he suggested that African governments should reaffirm their initiative in public policy vis-a-vis donor agencies, develop proper policy institutions and ensure rapid human resources and infrastructure development for enhancing policy analysis skills. In his presentation Dr. Moharir elaborated on available methodologies of policy analysis; such as quantitatively oriented methodologies of systems analysis, cost-benefit and cost effectiveness analysis, procedure-oriented methodologies and criteria-oriented methodologies. Commenting on the pros and cons of different methodologies, lie emphasized the need to have different and more comprehensive policy analysis framework for developing countries. This was in view of their different policy environment, policy agendas and challenges to the policy-making systems as compared to industrialized countries. Preferring the criteria approach, he further elaborated his own framework of primary criteria of effectiveness, efficiency, responsiveness and innovation and the supplementary criteria of political and administrative feasibility. Stressing further the link between nation building and policy-making, he outlined how the framework can be used in an operational and practical way. In the ensuing discussion, participants drew attention to the highly politicized process of decision-making on public policies and prevalence of political corruption in Africa, which reduce scope for the use of policy analysis. Other participants noted the relevance of the policy approach of Asian Tigers to Africa. Also the issue of political and administrative feasibility being primary rather than supplementary criteria was raised. Many of the above issues and some country specific issues were raised in the presentation of the country papers of Ethiopia, The Gambia, Ghana, Kenya, Nigeria, Swaziland, Tanzania, Uganda, Zambia and Zimbabwe. Out of the presentations and discussions of the country papers and the reports of the two Working Groups, the following main problems were identified in most countries:

4 1. Exclusion of major stakeholders from the policy-making process. 2. Problem of retention of skills in public policy analysis. 3. Difficulties in teaching and research on public policy in Africa due to absence of adequate literature on African policy scene. 4. Present partial emphasis on enhancing only economic policy analysis capability. 5. Poor remuneration system for policy analysts and policy level senior administrators leading to brain drain and external domination of policy process. 6. Absence of an enabling environment for more effective use of policy analysis inputs in policy-making. 7. Absence of government wide policy analysis units and other institutions to absorb Output of training programmes in policy analysis. 8. Absence of link between Think Tanks or higher level policy analysis centres and departmental policy analysis units. 9. Lack of sufficient resources for effective functioning of policy analysis units. 10. Lack of coordination and integration in the activities of policy analysis, planning, budgeting and personnel management. 11. Absence of formal process of organizational performance evaluation leading to implementation gap. 12. Lack of effective client involvement in policy process and in the design of service delivery. With regard to policy analysis methods, participants have identified the following methodologies that can be used by training institutions in Africa: a. Input-Output Analysis; b. Cost-Benefit Analysis; c. Cost-Effectiveness Analysis; d. Linear Programming; e. Futures Studies; f. Process Evaluation Method; g. criteria oriented methods; h. Statistical and Quantitative Methods; i. Case-Studies. The uses and limitations of each method were thoroughly discussed. The details of the discussions could be found in the reports of the two Working Groups in Appendix IV. Based on the deliberations in the Seminar the participants adopted the following recommendations for follow up action on the CAFRAD Seminar 1. In the interest of willing policy acceptance and effective policy implementation, policy formulation in African countries should incorporate the relevant stakeholders. 2. Incentive systems for policy analysis capability should be reviewed to ensure that an adequate levels of human and institutional resources are available in crucial positions in the civil service for policy analysis work, Remuneration systems should be made

5 sensitive to market forces, inflationary pressures and the performance or productivity of each civil servant. 3. Greater attention should be paid to training of public officers including political office holders in the executive and legislative branches in the art and science of policy analysis. The depth of the exposure would of course vary among these officials. While public officials will be sensitized to policy analytical issues in 1-2 day workshops, longer term training should have to be planned for civil servants. 4. African Governments should create conducive and enabling environment for policy formulation and analysis in their respective countries. 5. Appropriate policy analysis structures such as think tanks, policy analysis and review units should be created within the government system and effective relationship should be forged between these units and other such institutions in the private sector. 6. Once established, these institutions for policy analysis must be properly funded and while they should be close to policymaking actors at all levels, they should be given sufficient independence to perform their delicate roles. 7. Donors should be encouraged to support not only the setting up of Economic Policy Analysis Units but also other policy analysis units and activities. 8. Much closer relationship should be forged between policy analysis activities and planning, budgeting and personnel management in an organization to ensure coherence between policy design and resource allocation. 9. CAFRAD should explore the possibility of organizing 1-2 day workshops for politicians from African countries. 10. The present CAFRAD Seminar should be followed up by appropriate supportive actions such as in-country seminars. CAFRAD can collaborate with the African Capacity Building Foundation (ACBF) and other international institutions in this regard. 11. Comprehensive but practically-oriented methodologies should be developed by Organisations such as CAFRAD, the United Nations Economic Commission for Africa (UNECA), the Institute of Social Studies (ISS) etc. on the basis of their trial use in actual situations. 12. CAFRAD should initiate action for developing training manuals demonstrating concepts, examples and case studies on the use of different methodologies in the African context. 13. CAFRAD, in collaboration with ACBF and other African and international training institutions, should develop a network of policy analysis trainers in Africa to exchange experiences and to develop training materials Jointly. 14. Seminar participants request CAFRAD to bring the deliberations of this Seminar to the concerned African and International Organizations for implementation of the Recommendations made by the Seminar.

6 Appendix CAFRAD LIST OF PAPERS CONTRIBUTED TO THE SEMINAR I - KEYNOTE PAPERS 1. Enhancing Capacities for Public Policy Analysis in African Countries in the 1990s and Beyond, by Professor Claudius OLOWU 2. Methodology for Policy Analysis in Sub-Saharan Africa, by Dr. Vasant MOHARIR. II - COUNTRY PAPERS 1. Training in Policy Analysis Methods: The Ethiopian Experience, by Alemayehu SSEFA. 2. National Population Policy for Socio-Economic Development, by the National Population Commission, The GAMBIA. 3. Ghana's Experience in Policy Analysis Issues : The Case of Economic Policy Analysis, by C.K. DORDUNOO, G. Y. DOGBY and H.A. SACKEY. 4. Public Policy Making in Kenya, by George KANGETHE. 5. Nigeria's Experience in Policy Issues, by Babatunde OSINUGA. 6. Policy Processes in Swaziland, by F.M. BUCKHAN and S.B. CEKO. 7. Tanzania's Experience in Policy Analysis, by G.D. YAMBESI. 8. Capacity for Policy Formulation and Analysis : The Uganda Case, by David SSONKO. 9. Recent Reforms in Policy Co-ordination in Zambia: Inter-Ministerial Committee of Officials (IMCOs), by Siazongo D. SIAKALENGE. 10. Policy Analysis: The Zimbabwe Experience with Special Reference to Agricultural Policies, by R.M. SHORA. III - BACKGROUND DOCUMENTS 1. Introduction to Policy Analysis, by Jide BALOGUN. 2. Introduction to Organization Theory, by Jide BALOGUN. 3. Preparing for the Future, by Abdalla BUJRA. 4. Public Policy Analysis-. Gender and Development in Sub-Saharan Africa, by the Panafrican Institute for Development (PAID). 5. A Comparative Study of the Policy Formulation Process in Three African Countries: Ghana Study, by the European Centre for Development Policy Management (ECDPM) and the African Association for Public Administration and Management (AAPAM). 6. A Comparative Study of the Policy Formulation Process in Three African Countries: Tanzania Study, by ECDPM and AAPAM

7 7. A Comparative Study of the Policy Formulation Process in Three African Countries: Uganda Study, by ECDPM and AAPAM. 8. The Process of Policy Formulation -. Institutional Path or Institutional Maze? A Study based on the Introduction of Cost-sharing for Education in Three African Countries. Policy Management Report Number 3, by Joan CORKERY, Anthony LAND and Jean BOSSUYT.

8 REPORT OF WORK GROUP THEME: KEY ISSUES IN POLICY ANALYSIS 1 - Introduction Members Dr. V. Moharir Facilitator Mr. G. Yambesi Chairman Mr. R.M. Shora Member Mr. F. Buckham Member Ms. L. Michael Member Mr. E. Khan Rapporteur. The Chairman introduced the topic to all the members and welcomed ideas and suggestions. The agenda for discussion was unanimously adopted. The conclusions/discussions on each item are summarised below 2 - Target Groups It was agreed that target groups should incorporate major formal stakeholders in any particular given policy issue. This will make policy formulation much more manageable and hence reduce the risk of too many stakeholders filibustering a policy for their own ends. The involvement of these target groups can occur in many forms and the group cited 2 (two) of these -. - The example of Britain was cited where policy proposals are initially circulated to legal stakeholders in the form of a green paper which when finally adopted will be published in the government white paper. - Policy forums is another example where a draft policy paper is circulated and discussed extensively at various fora. The conclusions of these various discussions are then incorporated in a document for submission to the legislative. Implicit in all these, is the need to train key target groups such as politicians in the key areas of policy analysis, because ultimately they will be the final deciders. Furthermore, in order to maximize on the outputs and outcomes of policy, those lower down the hierarchy also require training they will be responsible for implementing the policy. Target groups also need to be prioritized depending on the percentage of their stake holding. The media arose as a category, which could be effectively utilized in many stages of the policy process given their pivotal role In information, education and communication.

9 3 - Retention of skills in Public Policy Analysis This is a problematic area in almost all countries in Sub-Saharan Africa and one possible way to address this issue will be to create and perhaps institutionalize various incentive schemes. The group therefore came up with the following possibilities : Differential remuneration based on scientific job evaluation Bonding Effective recruitment practices to ensure that the requisite calibre personnel are recruited and remunerated accordingly Tax Free allowances Low cost housing, for Public Sector employees Visibility of the prime architects and brains behind a particular policy Real producers to be rewarded by either accelerated promotions OF delegation of more responsibility in order to realize the goals of self-actualisation of employees Train and sustain adequate reservoir of skilled manpower. 4 - Policy Environment - The remuneration system should however be sensitive to what is available in the Market - scarcity value. - Remuneration should also be sensitive to inflation, otherwise incentive schemes could turn out to be disincentives, The environment of Policy Analysis is considered extremely important as a key Issue. Policy Analysis Units cannot succeed in the absence of support and recognition from the Bureaucracy. The Centre Policy Review Staff (CPRS) In Britain is cited as an example where its demise was partly due to mistrust and lack Of Corporation from the Mandarius in Whitehall. The potential power of Ministers could indeed frustrate a well-intentioned policy. Therefore, deliberate efforts should be made to promote harmonious working relations between Government and Donors and between government and other agencies. There is also the need for effective co-ordination of government ministries and proper understanding of roles between Ministers and Civil Servants.

10 It is also recognized that Donors should be involved in resource allocation and mobilization and to conduct tailor-made training activities in Policy analysis The African Capacity Building Foundation (ACBF) is a case in point and there is general consensus that this Organisation should not only support Economic Policy Analysis Centres but should also address specific assistance to African Centres in other areas of Policy Analysis. 5 - Proper Institutions for Policy-Making - Think-Tanks : Think-tanks are still very rare in many developing countries and where they exist such as in India, South Africa and Nigeria, there are no comprehensive studies to evaluate their contributions to policy. Many of their functions are currently performed by Policy Analysis Units in the respective countries or by Review Panels as is the case In Zimbabwe. However, at this stage, many governments would be reluctant to have them far away from the nerve centre. - Policy Units : The need for Policy Analysis Units has already been buttressed during the proceedings of the Seminar. However, these units require help and guidance, training of staff and adequate on-the 'ob experience to make them effectively functional in all dimensions of Policy Analysis. This expertise could be provided by ACBF and/or other agencies. 6 - Links between Think-Tanks and Policy Analysis Units Due to the difficulty in establishing Think Tanks in the truly classical sense, an alternative approach would be to link Central Policy Analysis Units (CPAU) to other Policy Units in Ministries and most importantly to establish a linkage between Policy Analysis budgeting, planning and personnel since all these other elements have policy implications. 7 - Resources for Public Policy Analysis Units Where a unit has to be created, then certainly adequate resources will be required from the budget to make it functional. Alternatively, suppression of positions in ministries can be done to create savings which are then transferred to Policy Analysis Units which will then cover up for those activities that could have been done if those positions were left untouched. The possibility of securing funding from ACBF and the desirability for such funding could be an attractive option. Finally, it must be made clear that Policy Analysis must not be divorced from issues like budgeting, planning and Personnel as mentioned earlier and that this linkage should be established and formalised/enhanced. In other words, these inter-related functions can be incorporated in a combined unit for Policy Analysis. Furthermore, better policies can be achieved by linking organisational performance with policy objectives through reforms such as management audits and employee/organisational performance evaluation contracts and citizen's involvement in organisational evaluation - citizen's charter/client charter.

11 RECOMMENDATIONS 1. CAFRAD to explore possibility for organizing workshops for politicians. 2. Co-ordinate activities with ACBF as a follow-up action. 3. Organize country-training programmes - CAFRAD/ECA/ISS, etc Promote case study programmes on Policy Analysis. 5. CAFRAD to collect the workings of Think Tanks in other areas.