For Change Approaches to Managing Developinent Programs

Creatirg Opportunities for Change Approaches to Managing Developinent Programs Louise G.White Creating Opportunities for Change ' I Studies in Development Management Series Editor: Louis A. Picard National Association of Schools of Public Affairs and Administration and the University of Nebraska at Lincoln A series of books prepared by The National Association of Schools of Public Affairs and Administration and The Development Program Management Center of The United States Department of Agriculture, sponsored by The Bureau for Science and Technology of The United States Agency for International Development - Books in the Series • " Management Training Strategies for Developing Countries John E. Kerriganand Jeff S. Luke • Development Administration and U.S. Foreign Aid Policy Dennis A. Rondinelli " Creating Opportunities for Change: Approaches to Managing Development Programs Louise G. White " Organizational Change as a Development Strategy: Models and Tactics for Improving Third World Organizations Jerald Hage and Kurt Finsterbusch Creating Opportunities for Change Approaches to Managing Development Programs Louise G. White Lynne Rienner Publishers • Boulder &London f Published in the United States ofAmerica in 1987 by Lynne Rienner Publishers, Inc. 948 North Street, Boulder, Colorado 80302 01987 by Lynne Rienner Publishers, Inc. All right3 reserved Library of Congress Cataloging-in-Publication Data White, Louise G. Creating opportunities for change. (Studies in development management) Bibliography: p. Includes index. 1. Economic development projects-Management. I. Title. I. Series. HD75.8.W47 19E7 338.9'0068 87-4557 ISBN 1-55587-031-7 (lib. bdg.) Printed and bound in the United States ofAmerica The paper used in this publication meets the requirements of the American National Standard for Permanencm ofPaper for Printed Library Materials Z39.48-1984 ( v1_ To Coralie Bryant A friend anc' colleague whose ideas and enthusiasm have sparked much of the growing interest in development management Contents List of Tables and Figures ix Series Foreword xi Acknowledgments xv Part 1 A Framework for Managing 1 Development Programs 1 Characteristics of Development Programs 5 2 Dimensions of Management 21 3 Identifying Approaches 39 Part 2 Approaches to Managing 53 Development Programs 4 The Goal-Directed Analysis Approach 55 5 The Anarchy Approach 87 6 The Bureaucratic Process Approach 109 7 The Institutional Analysis Approach 133 8 The Social Learning Approach 159 9 The Political Learning Approach 187 vii viii CONTENTS Part 3 Implications of the Approachea 213 for Program Management 10 Creating Opportunities for Change 215 Bibliography 239 Index 271 About the Author and the Book 283 Tables and Figures Tables 1.1. Characteristics ofPrograms 12 1.2. Characteristics of Development 15 1.3 Characteristics of Sustainability 16 3.1 Approaches to Program Management 47 3.2. A Framework for Studying Program Management 48 3.3 Predictions About Program Implementation 50 4.1 Strategies in a Goal-Directed Approach to Management 79 5.1 Implications of an Anarchy Approach for Management 106 6.1 Strategies in a Bureaucratic Process Approach to Program Management 129 7.1 Public Choice Theory ofGoods 143 7.2 Implications of an Institutional Analysis Approach for Program Management 153 8.1 Strategies in a Social Learning Approach to Management 180 9.1 Strategies in a Political Influence Approach to Management 209 Figures 2.1 Responsibilities of Policy Makers and Managers 24 5.1 Relationship Between Learning and Change 97 ix Series Foreword Webster defines management as "the judicious use of means to ac complish an end." Applying management concepts to economic and social development programs in the Third World is a complex and multifaceted task because the manager must deal with elusive goals, changing environments, and uncertain means, and because optimal directions for organizing donor programs to assist the man agement ofThird World programs have been ambiguous. The com paratively new field of economic and social development manage ment is challenged to create more useful intellectual resources for both developing country management and donor cooperators. Specialists in the field-managers, analysts, consultants, educators, and trainers-have found that to trace the academic base of development management is to draw a broad and interdis ciplinary framework. Members of the development fraternity con tinually call attention to the diversity of the subject areas that are critical to the judicious management of social and economic change. The need to develop a better understanding of development pro gram management both in theory and practice has prompted the preparation of the current NASPAA/DPMC series. The Rondinelli book, analyzing the development management work that has been funded over the past fifteen years by the Agency for International Development (AID), examines some ofthe major research contribu tions to the development management field. The White, Hage- Finsterbusch, and Kerrigan-Luke volumes synthesize, probe, and order the academic bases for practice aimed at strengthening de xi xii SERIES FOREWORD velopment management. Their subjects--development program management, organizational change strategies for more effective program management, and management training strategies for promoting improved program management-are purposely inter related. The focus is on development programs in the Third World. These books order and organize complex subjects. They thereby invite collateral analytic work by specialists in related concentra tions and with related perspectives. In particular, we seek stronger links with work by Third World specialists, for although the au thors have sought a Third W6orld perspective, they have relied heavily on literature available in the United States. The fifth book in the series presents the development mwnage ment writing of one person. The Perlbrmance Management Project has valued the work of David Korten, chiefly in Asia, throughout his close to five years of work under the Project. His writings grow ing out of this work have found a wide and appreciative audience among those concerned with management for greater development strength at the grass roots. The Performance Management Project and NASPAA are pleased to include a compendium of his writings in this series and to have the opportunity to emphasize this aspect of development management. The impetus and subsequent funding for the research dis cussed in this series came from the Performance Management Proj ect in the Office of Rural and Institutional Development of AID's Bureau for Science and Technology. The research should be u;eful to both practitioners and educators interested in international de velopment and related fields. A ma'jor purpose of the books, from the funder's point of view, is to make more explicic the links be tween the assimilated knowledge and skills of the development management practitioner and the literature base that supports de velopment practice. This required creative, developmental work. We are grateful to the authors for their considerable investment in time and thought that have brought these results. The organizations that have implemented the Performance Management Project-the National Association of Schools of Pub lic Affairs and Administration, the Development Program Manage ment Center and its cooperator, the International Development Management Center of' the University of Maryland-have for a number of years undertaken a variety of practical and analytical work with developing country organizations for improved manage ment. The NASPAA, DPMC Studies in Development Management series reflects an interaction between the individual authors and SERIES FOREWORD xiii the experienced practitioners associated with the two implement ing organizations. I would like to express my appreciation to an extraordinary group of people connected with the Performance Management Proj ect who have contributed to this series. These books build on the work of many practitioners and academics who have been asso ciated with the Performance Management Project over the past seven years. Particular thanks go to Wendell Schaeffer, Louise White, and Merlyn Kettering, Project coordinators for the manage ment training, organizational change, and program management books respectively; to the series editor, Louis Picard; and to the editorial committee who, from its inception, provided this venture with important direction and analytic support strengthened by practical experience. They and I, in turn, are grateful to the specialists outside the Project who have contributed substantially through their critiques of the manuscripts. We want to make ap preciative note of the understanding, leadership, and support that the books in this series have received from Kenneth L. Kornher, chief of the USAID division which is responsible for institutional development and management research. Christopher Russell, Jerry French, Eric Chetwynd, John O'Donnell, and Robert McClusky also have provided valuable agency support to this proj ect's research activities. JeanneFoot North Project Officer The Performance Management Project Office ofRural and Institutional Development Bureau for Science and Technology Agency for International Development Editorial Committee Studies in Development Management " Richard Fehnel National Association of Schools of Public Af fairs and Administration " Marcus Ingle International Development Management Center, University

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