Designing for implementation

Learning note

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This Note relates to KSF4: Implementation arrangements and institutional aspects
Version: January 2008

Core issues

Proposals for project and programme implementation should start from consideration of:

  • Potentially desirable implementation arrangements, taking account of the chosen development aims, focus, component mix and the particular characteristics of the target group.
  • The strengths and weaknesses of implementing organisations currently available and institutional gaps (based on details given in the institutional Key Files; see also Learning Note 4.1 - Pro-Poor Institutional Transformation.
  • Possible alternative approaches and strategies for implementation – e.g. use of government line agencies vs. creation of a separate project management or co-ordination unit (PMU/PCU); degree of reliance on external technical assistance.
  • As a general principle implementation arrangements should help and encourage the implementing organisations to do what they do best and avoid radical changes in responsibilities.

The implementation arrangements adopted should:

  • Take account of implementation experience and lessons of previous IFAD projects.
  • Be based on a sustainable management structure – e.g. one that avoids heavy PMU/PCU staffing, makes strategic use of outsourcing and external technical assistance etc. – and avoids creating parallel or overlapping responsibilities.
  • Ensure a mix of competencies that matches the investment strategy, focus and aims for poverty alleviation, and clearly allocates organisational and individual roles and accountabilities.
  • Include provisions for competitive, transparent and gender-balanced recruitment procedures and give attention to gender-equality issues in TORs of project management staff.
  • Provide for flexibility in the face of unforeseen events.

Key tasks for design and review

IFAD Formulation, Appraisal, Supervision or Review teams may be required to: define implementation responsibilities and budgetary needs; prepare operational plans to fill implementation gaps or overcome bottlenecks; develop and introduce new modes of operation; promote needed changes in implementers’ behaviour; or improve implementation skills and capacities. Depending on the stage of the project cycle, team priorities may be to:

  • Identify potential implementing organisations and assess implications or requirements for organisational change and strengthening, including organisational gaps to be filled and any policy changes or other reforms needed.
  • Develop plans and budgets to introduce and support change within the chosen organisations and resolve issues arising from their new implementation roles. Tackle any unwillingness or inability of government services or contracted service-providers to take on new modes of operation; overcome any persistence of past paternalistic approaches and mindsets.
  • Work with key stakeholders to build capacity and commitment within chosen organisations to improve or adapt their implementing roles, accept change, absorb strengthening and assistance, support investment aims, meet specific needs of the target group, and contribute counterpart funds in a timely manner. Help implementation partners to co-ordinate their work and resist pressures for over-centralisation of management processes.
  • Address obstacles to availability, recruitment or retention of acceptable management staff; devise means to achieve the stipulated gender balance or gender sensitivity of attitudes among project management; overcome inadequacies in the incentives (in cash or kind) for field presence of support staff.
  • Ensure the compatibility of any changes in implementation arrangements with existing national development policies, poverty reduction strategies, development plans and programmes, administrative procedures, inter-organisational links, and available human resources.
  • Maximise the response of implementing organisations to the specific needs of the target group through introduction and promotion of participatory planning procedures, while excluding participatory procedures that are vulnerable to political manipulation or raise unrealistic expectations among the target group.
  • Set achievable, realistic targets for implementation and change, in particular for:
    • the pace and depth of capacity building, ensuring also that budget allocations match the scale of capacity building or organisational change that are proposed;
    • start-up and procurement procedures, identifying and focusing on the easing of critical paths to pre-empt potential bottlenecks;
    • extent of reliance on external technical assistance, balancing needs for timely start-up and implementation against risks of jeopardising the pace at which sustainable local capacity for implementation can emerge.

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