Participatory environmental management: Contradiction of process,project and bureaucracy in the Himalayan foothills

Using comparative Asian experience of organizational change, this article analyses the experience of an Indian organization responsible for environmental management in the Himalayan foothills of Uttar Pradesh (UP) in moving from a standard Indian public sector approach to rural development and environmental management, to a new participatory approach. Successive World Bank funded watershed management projects in the Himalayan foothills were widely held not to have achieved and sustained their full potential in the past, largely due to an absence of effective local management of assets after the projects' end. On the other hand communities and groups have shown on a small scale a capacity to manage resources in a sustainable way. The Government of Uttar Pradesh's (UP) European Union (EU) funded Doon Valley Project has been through a first phase in which a participatory method of village level planning has been initiated. The article addresses the required changes and constraints involved in this first step of transformation. These include issues to do with organizational structure and procedures, training, gender and other social issues, and the dynamics of organizational change. The implications of a participatory approach are far reaching. The ‘off the shelf’ schemes that Government has offered to individuals, groups and communities in all watershed management as well as other rural development programmes are challenged both by the specificities of the Himalayan environment, and by the adoption of a genuinely participatory approach. Allowing people to decide how they will manage their hillsides requires an ability to facilitate that process. Facilitators need to have the flexibility and creativity to offer a variety of technical and managerial possibilities such that individuals, groups and communities can choose what suits them best. Constraints derive partly from the Government's set procedures and schemes in rural development, and from its advocacy of particular well worn technology packages. Constraints also derive from the way in which the whole project has been handled by Government and the Commission of the European Union from the beginning, and from the way in which technical assistance has been organized. It is important that governments and donors learn from such experiences so that future participatory environmental management work can have a greater chance of success.     

Local Transportation Sales Taxes: California's Experiment in Transportation Finance

Over the last 25 years, voters in 20 California counties approved “local transportation sales taxes” to pay for transportation projects. A growing source of revenue, they generate roughly $2.5 billion per year. Four features explain their popularity: they require direct voter approval; funds are raised and spent within the counties that enact them, so voters experience benefits directly; most automatically expire; and they usually specify the improvements to be financed. These taxes are an important revenue source, but tend to favor capital investments over operations and maintenance. They have enhanced local governments' decision‐making authority, but may have made regional transportation planning in multicounty regions more difficult to achieve.     

Administering rural development: Have goals outreached organizational capacity?

In a comparative analysis of 15 rural development projects the author finds five problem areas in their administration: project economics; design and location of infrastructure; design of project technical outputs (‘software’); support services; and maintenance and management of infrastructure. All but one of the projects reviewed were severely hampered by one or more of these problems. The author suggests that these problem areas are caused by three general patterns: disjunction between project designers and managers' working models of reality and reality in the field; goal conflict among diverse agencies involved; and the simple technical complexity of the rural development task. The author concludes by noting these three patterns are found throughout developed countries as well as the less developed, but may have more severe consequences in the less developed because of the absence of organizational and social redundancy to catch, correct and circumvent these perhaps unavoidable features of centraliy administered, complex projects. Fewer, but more organizationally enriched, projects may do more for rural development than the current pattern where many donors each design many projects, overwhelming at times the organizational capacity of less developed countries.     

An innovative approach to metropolitan management in the philippines

The paper describes the historical development of metropolitan planning and administration in Metro Manila, and identifies five major problems: the sectoral isolation of planning; the inadequate involvement of local government; inadequacies in planning methods; weaknesses in the system of resource management; and institutional fragmentation. The development of the Capital Investment Folio process, its institutional framework and the main characteristics and results of applying the approach are described. The benefits and lessons which have emerged are then set out and their possible application elsewhere discussed. The main achievements of CIF are progress towards a rational system of urban planning; the generation of consensus within government about Manila's investment strategy; a more widespread appreciation of opportunity costs; and a new understanding of how to plan under conditions of uncertainty. It remains for CIF to be integrated into the national resource allocation process, and to be fully accepted by national government agencies. Local government still needs to be positively involved in the planning process.     

Rural development management in Nepal,Part I: Coordination in the Rasuwa-Nuwakot Integrated Rural Development Programme

Rural development management in Nepal has been criticized for more than a decade now on the grounds of the country's weak aid-absorbing capacity, administrative slowness and poor project management. Though several reforms of the rural development planning and management systems have been staged, at present coordination in integrated rural development projects remains weak. The paper reports on the empirical findings of research on mechanisms, procedures, organizational arrangements and problems of coordination. Although the country's environment, and its socioeconomic and cultural constraints, may negatively influence smooth operations in implementing integrated programmes, several policy considerations for improvement may be formulated. Among these, organizational reform with decentralization and reduction of the number of offices involved, strengthening the resource management system, especially budget release and personnel motivation, and a more integrated method of policy, programme and project formulation are the issues considered most important by the government officers themselves. Part II will appear in vol. 7, no. 3 of this journal, and examines the implementation and management of rural development in the Karnali and Bheri districts of the Mid-Western Development Region of Nepal.     

Planning and budgeting in Pakistan

Twenty years ago a pioneering study of planning and budgeting in Pakistan pointed to significant weaknesses. This article reviews the changes made subsequently to the formal processes and assesses how these are currently working. The planning agency is now a permanent organization. Planning and budgeting have been combined and these processes have moved closer to the centre of political power. On the other hand there are difficulties over linking planning and budgeting to the management of economic and fiscal policy; planning is geared to securing foreign aid funds; the planning processes favour large expensive projects which emerge from the more developed areas of the country and discriminate against the smaller projects with a shorter time horizon needed in less developed provinces–thus accentuating economic imbalances. Finally, although the importance of evaluation is recognized, in practice reporting and evaluation are not adequately practised.     

Private sector investment in the development of the Bahamas: Lessons learned from successful programme implementation

One of the most significant problems developing nations have faced in recent years has been finding effective ways of implementing development plans and programmes. This is in large part due to the dearth of knowledge about programme implementation, and the lack of attention given to the design of implementation strategies by planners and administrators in third world nations. But, implementation is now becoming a central concern of governments in developing countries and of officials in international funding institutions. Also, development administration theory in the 1980s is likely to have as its dominant focus the improvement of implementation management of development programmes and projects. One way to improve the management of development programmes and projects is to analyse those development projects that have succeeded, identify the factors that appear to influence successful implementation, and disseminate this information as broadly and quickly as possible to relevant administrators and administrative theorists. It is revealing that relatively few studies of this type have been completed. This article outlines the lessons learned from a programme that the Government of the Bahamas is successfully implementing-the encouragement of foreign private sector investment in the Bahamas. The article (a) briefly outlines th'e plan for encouraging foreign investment, (b) describes the basic approaches and techniques the Bahamian Government has learned to use to improve the prospects of implementing this programme, and (c) indicates how this experience may be potentially useful in guiding the implementation of similar programmes in other developing countries.     

A MUNICIPAL LAND POOLING PROJECT IN PERTH

Planning control of urban land use in most of the Australian States is by the planning scheme system and is authorized by legislation based on the English Town and Country Planning Act, 1932. Under this system each planning authority prepares a land use zoning and reservation plan designed to accommodate the forecast urban growth. It then reviews and regulates the proposals for urban development projects as they are brought forward to ensure that they conform to the plan.     

The Low‐Income Housing Tax Credit An Analysis of the First Ten Years

Abstract

The Low‐Income Housing Tax Credit (LIHTC) has been the de facto federal rental housing production program since its creation in the Tax Reform Act of 1986. In this article, using a detailed database on 2,554 LIHTC projects, we analyze the costs of building these projects, where they are built, their financial viability, whom they serve, who finances them, and the size of the subsidies provided to them.

The LIHTC is a flexible program that has built different types of housing in various markets. While LIHTC projects serve low‐ and moderate‐income households, their rents are beyond the reach of many poor households without additional subsidy. Revenues just cover costs for many LIHTC projects. Over time, considerably more of each tax‐credit dollar has ended up in the projects, and returns to equity investors have dropped significantly, perhaps reflecting an increased understanding of project risks. We estimate that LIHTC projects developed by nonprofits are 20.3 percent more expensive than those developed by for‐profits.     

NATIONAL PROJECTS IN CIVILIAN TECHNOLOGY

National projects in civilian technology initiated and implemented by the federal government generally cost in excess o f $1 billion and often extend beyond the political lifetime of a particular presidential administration. The authors explore the consequences of the U.S. political and administrative system on government-sponsored technology development by examining four such national projects: the SST, civilian nuclear power, synfuels, and the supercomputer. They relate the absence of planning and often tortuous course that characterizes these cases to the functioning–for better or worse–of American pluralistic politics.     

Cities and people: Towards a gender-aware urban planning process?

Recognition of the deficiencies of traditional ‘blueprint’ approaches to land use and infrastructure planning has led to increased emphasis on management of the process of urban development. Such management should recognize the distributional impacts of decision-making and be responsive to the needs of residents. However, much urban planning activity has been and continues to be gender-blind. In order to redress this deficiency, it is argued that increased understanding is needed of women's economic and social roles in urban society, their exclusion from economic opportunities and decision-making processes, and the discriminatory nature of much legislation. Urban residents’ experience is shaped both by household strategies and by the way in which they are affected by or can affect planning, investment and management decisions made at the neighbourhood or city level. Differing experiences may be related to class and ethnicity, but are also likely to be gender-specific. The potential impact of policy and investment in a variety of sectors of urban development on residents, especially women, is explored. Recommendations are made for a more gender-aware approach to planning for economic activity, land and shelter, public transport and infrastructural and social services, and for specific actions to be taken by both planners and residents.     

Using brain skill assessments to increase productivity in development administration

This article describes how BMS (brain skill and management styles) assessments have and can be used to increase productivity in development administration. The article starts with a brief outline of the management climate which executives face in developing countries (crisis and rapidly changing environments). The article points out that although developing countries have significantly increased their productivity by using traditional quantitative management tools and techniques, they increasingly find that these approaches need to be supplemented with other techniques more appropriate to the environment they must contend with. BMS programmes have been found to be one tool which, combined with established training programmes can serve to increase productivity in developing nations with existing personnel. The article describes what a BMS programme is (identifying human brain skills and management styles that exist in organizations, and matching these skills/styles to the management problem at hand where they can be best employed to enhance productivity), and illustrates how this technique has been used successfully in one developing country. The BMS programme applications in the article are based on the results of testing over 2000 managers and also the experience from implementing in-depth BMS programmes in several countries in a wide variety of organizational settings (business, government, education, military and health).     

Environmental planning,administration and management in Nigerian Cities: The example of Benin City,Bendel State

Third World cities are characterized by weak administrative and managerial capacity for environmental planning. Benin City, Nigeria, is no exception. Benin's environmental problems result largely from its unplanned land use and weak development control. These problems include lack of open space, substandard housing and an increasing volume of refuse. The administrative arrangements to handle environmental problems include the Town Planning Division, which enforces building and housing codes and land use regulations; and the Task Force on Environmental Sanitation, responsible for solid waste management. However, these arrangements have not produced satisfactory results. Failure has been due partly to the ad hoc organization of environmental administration; the overlapping perception of environmental problems; the alienation of the public; dispersal of authority; and the scale of jurisdictional units. Effective environmental planning administration must adopt a holistic approach, which recognizes the need for a comprehensive environmental planning and a concentration of environmental authority. This is based on the premise that environmental issues are the responsibility of one agency but an obligation for all. Structurally, the concentration of environmental authority hinges on the principle of cooperative leadership by the Federal Government. This calls urgently for the establishment of a Federal Environmental Protection Agency at the centre, and Environmental Management Boards at state levels. The Boards would provide an administrative umbrella under which the management of various aspects of the environment are coordinated. In order to maximize the cooperation of the public, the traditional power structure of the Oba (paramount chiefs and community leaders) must be involved in the conception and implementation of environmental planning. Citizen participation would in turn be maximized if the neighbourhood is adopted as the jurisdictional unit, upon which environmental administration and management are systematically built.     

Can participation be induced? Some evidence from developing countries 1

Influenced by Amartya Sen, over the last decade, The World Bank has allocated nearly US$80 billion to local participatory development projects targeting poverty, improved public service delivery, and strengthened social cohesion and government accountability. But the success of these programs is hindered by both endogenous local factors and flawed program design and implementation. Two especially important local obstacles are (1) entrenched interests of political agents, civil bureaucrats, and non-governmental organizations (NGOs) with either incentives to resist or capabilities to appropriate program resources, and (2) poverty and illiteracy, as the poor and illiterate participate less and benefit less from participatory projects than do the wealthier, more educated, and more connected. After reviewing hundreds of participatory projects, three lessons are clear for program planning. First, contextual factors like inequality, history, geography, and political systems (among others) are important. Second, communities do not necessarily have a ready stock of ‘social capital’ to mobilize. Third, induced participatory interventions work best when supported by a responsive state – donors cannot substitute for a non-functional state, and successful programs combine enlightened state action from above with social mobilization from below. Future participatory development projects would benefit substantially from revised planning and considerably more attention paid to evaluation and monitoring. Project managers have historically paid little attention to context, monitoring, or evaluation, in part because The World Bank’s operational policies did not provide incentives to do so. Donor agencies should also exercise greater patience and allow for flexible, long-term engagement to facilitate contextual and programmatic learning, including learning from failure.     

Urban construction,professions, and immigration at the origin of urban studies in Venezuela, 1870-1957

The individuals and circumstances involved in the creation of the first graduate urban studies program in Venezuela are recalled, beginning with the odernization of Caracas under the impulse of President Antonio Guzman Blanco, elected in 1870. Guzman Blanco converted himself into Venezuela's first urbanist with the establishment of organizational frameworks and completion of massive public works projects, which were based largely on the urban models of the US and Europe. Engineering and public health were consolidated as the two most influential sources of professional competence for guiding urban development. By the mid-1930s, growth fueled by petroleum revenues was causing rapid urbanization, and it became apparent that trained professionals able to manage the increasingly complex tasks of urban planning were in short supply. A new surge of modernizing construction began in 1936 and led to a cooperative arrangement with a French firm, whose personnel were to be required to train Venezuelan engineers for future service in urban planning. An influx of refugees from the Spanish Civil War and the increasing influence of urban planning processes in the US were also observed. The National Commission on Urbanism was created in 1946 as a dependency of the Ministry of Planning to facilitate public administration of the development and control of cities. Throughout the period, a debate was underway on the need for a multidisciplinary approach to urban planning versus a primarily architectural or engineering approach. In 1957, some consensus was reached on the need for urban planning to be viewed as more than a speciality of architecture. A framework was developed for a graduate program in 1969 in the Central University of Venezuela. The National Commission on Urbanism was disbanded in 1957, largely because of its excessive focus on architecture to the exclusion of other disciplines relevant to the urbanization process.     

The role of monitoring and evaluation in project planning,in relation to the upgrading of unauthorized housing areas

This paper explores the role of monitoring and evaluation in the planning process with reference to urban development projects, especially those concerned with the upgrading of unauthorized housing areas. Monitoring, it is suggested, may be separated from evaluation, which may itself be subdivided into ongoing or formative and ex post or summative evaluation, and definitions of these terms are offered. Potential audiences for monitoring and evaluation research are identified and their interests discussed. Monitoring and evaluation requirements in relation to upgrading projects are then analysed in more detail, in terms of organizational requirements, methodology, and the utilization of findings. The discussion is illustrated with examples of the monitoring and evaluation systems established in upgrading projects in Zambia, Indonesia and the Philippines. Finally, some of the substantive issues which are relevant to the evaluation of upgrading are outlined and briefly discussed. These include the efficiency of project implementation, progressive development and self help construction as a means of increasing the low cost housing stock, community participation in planning and implementation, affordability and project impact.     

公共基础设施项目的混合开发模式研究

虽然BOT模式已广泛用于公共基础设施项目的开发,但是,经济效益不佳的项目很难直接采用BOT模式;对于投资规模巨大的项目,采用BOT模式也难以获得竞争性投标。为了扩大BOT模式的应用范围,利用项目的可分解性,从理论上探讨了项目的混合开发模式。按照项目的不同分解方式,把混合开发模式分为双合同策略混合开发模式和多合同策略混合开发模式两大类。通过北京地铁四号线和宜泸渝高速公路项目的案例分析,不但剖析了混合开发模式的优缺点,而且证明了混合开发模式比单纯的BOT模式具有更大的灵活性、更广的应用范围,可以克服BOT模式的局限性,具有广阔的应用前景。     

Cost-utility assessment: Planning with local decisionmakers in developing countries

In the past decade countries and donor agencies have endorsed health policies which (1) give a very broad definition of health, (2) see the pursuit of health as part of the development process, and (3) emphasize the local community's and local decision-maker's participation in the planning of health projects. Despite these broad principles, health delivery systems in developing countries have access to a very limited set of resources. Health planners are faced with the dilemma of creating cost-effective programmes while recognizing the need to take into account the broad definition of health and the importance of local participation in planning. This dilemma has led to a division between those planners who put greater emphasis on the use of cost analysis techniques in which the decision-making process rests more with professional planners (often outside consultants) vs those who emphasize greater local control of the decision-making process. The purpose of this paper is to present a study in which two alternative approaches to cost utility analysis were used. Consideration was given both to the actual cost analysis strategy and to the integration of the cost variable into the total decision-making process. Finally, major emphasis was placed on including local decision-makers in the planning process and providing them with feasible and understandable decision-making tools.     

UNANTICIPATED CONSEQUENCES OF A.I.D. PROJECTS: LESSONS FROM IMPACT ASSESSMENT FOR PROJECT PLANNING

We examine lJ.S. Agency for International Development project designs as described in pre-project design documents arid compare them using document review protocols to project outcomes as described in project impact evaluation reports for 40 projects. From this we draw three major conclusions concerning project designs: (1)most are unrealistic – estimated outputs greatly exceed actual outputs at the same time that considerable cost overruns occur, (2) they do not adequately assess the feasibility of the implementation, maintenance, and use of the project and its outputs, and (3) they do not adequately assess potential negative impacts. In light of these shortcomings we offer several recommendations for consideration and testing.