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(in FourI Volurnes)  Volum1e i ihe   ain lt   frt
A;rl 211, 1986
'4             EdNiiuca u on and ,Manpowver Develomen,t Division
Eastern and Southern Africa Reo,4on                                                                    .
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CURRSNCY EQUIVALENT (1985)
US$1.00           -       Maloti tM) 2.23
US$1.00          =        Emalangeni (E) 2.23
US$1.00           =       Pula (P)1.90
Maloti 1.00       =       Us$0.46
Emalengeni 1.03           US$0.46
Pula 1.00        =        US$0.53
GLOSSARY
ATDO       Association of Training and Development Officers
BWAST      Botswana Workforce and Skill Training
BEDCO      Basotho Enterprise Development Corporation
BDC        Botswana Development Corporation
BIAC       Botswana Institute of Administration and Commerce
BTC        Business Training Center
BLS        Botswana, Lesotho, Swaziland
CAS        Center for Accounting Studies
CIDA       Canadian International Development Agency
EDI        Economic Development Institute (World Bank)
EEC        European Economic Community
IDM        Institute of Development Management
LIPA       Lesotho Institute of Public Administration
MADREC     Management Development Resource Center
MAMC       Mananga Agricultural Management Center
MSD        Management Services Division
MSU        Management Services Unit
NAASPA     National Association of Schools of Public Administration
NIPA       National Institutes of Public Administration
RAASA      Regional Association of Accountants for Southern Africa
RMA        Rand Monetary Area
RTC        Regional Training Council
SADCC      Southern Africa Development Coordinating Conference
SEDCO      Swaziland Small Enterprise Development Corporation
SCOT       Swaziland College of Technology
SIMPA      Swaziland Institute of Management and Public Administration
USAID      United States Agency for International Development
FISCAL YEAR
April 1       -       March 31



FOR OFFICIAL USE ONLY
TAIL OF COaNTS
Pages
SUMKARY AND CONCLUSIONS .................      e    ..................    i
I.   INTRODUCTION ........................................
Purpose of Report  *       .....................................o  1
Objectives  .....................  I.*...*,***............       1
Report Organization .606.....................................    2
Outline of the Main Report               ....                    2
II. MANAGEMENT DEVELOPMENT IN BLS
Overview 660666606666066666666S666066606S..6666.6....6..         3
Public Sector Management Roles       .........................   3
Managciuent Development .066066 6666....................000      4
III.  DETERMINANTS OF MANAGERIAL EFFECTIVENESS
Introduction 600666*666**6*.06.................6........ 0       6
Labor Supply Conditions  ...660..                                6
Factors Relating to Work Situation        .............0........  7
Factors Relating to Local Management Training
Institutions ...6 *66606600006@60066006@6666666.0*...*    11
Factors Relating to External Training        ...................  12
IV. SUMMARY OF MOST IMPORTANT PUBLIC SECTOR MANAGEMENT
TRA_NING NEEDS
Introduction 66600s******6***060**6*6***66**6***066*.*.*.    13
Training of New Managers *..........        ** ..........    14
Training in Policy .         o. 660666 0666 .......... ................    15
Training in Delegation and Managerial
Responsibility                      ............ ,           15
Training in Financial Management and Accounting.....o .....    16
Training in Planning .66.......................                 17
V.    SUMMARY OF BROAD RECOMMENDATIONS ON MANAGEMENT
DEVELOPNENT AND TRAINING   ... . . . o ........*.*.*.........06*    18
This report is based on missions to the BLS countries, in March
1985, by Mrs. N. Shields (Economist/Mission Leader), and Mr. H. Davies
(Public Accountant, Consultant), and in July 1985, by Mrs. N. Shields
(Economist/ Mission Leader), and Messrs. R. Lynn (Senior Management
Specialist), L. Roberts (Management Training Specialist), and P. Langseth.
(Personnel Management Specialist). The report was discussed in the field
in February 1986 in a mission composed of Mrs. N. Shields (Mission Leader),
Messrs. P. Langseth, and L. Roberts.
I This document has a restricted distribution and may be used by recipients only in the performance
of ther offic duties. Its contents may not otherwe be disclosed without World bank authorizion.



V.    ISSUES AND RECONKDhfWIONS REULITD TO PUROUIL
AEGrMI
Introduction ........m     ....................              22
Organization of the Civil Service Persomm 
Functionsmg.... ...* .... *,*****~******eeeesss            23
Some Important ITsues Related to Civil S wio
Personnel Management .. ese*eeu*s**    ... .                 24
Recommendations  2.5.e2S
VI.   SUMARY OF NATIONAL             TRAININ  IISTITU3
Introduction ...... .......s                                 27
Types of Institutes *............              ....          27
Summary Evaluation of Training Institutes s.....             28
VII. INSTITUTE OF DEVELOPMENT MANAGRIINT
Introduction ..............e........e..****e*                32
Origins and Purpose ........e............*...                32
Structure and Staffing ......e............wsooe              33
IDK Facilities .....e*euesssse***s*'s*e****                  34
Revenue and Expenditures ..*eeeee.eeoeeeeeeee                34
Participation Rates ......e...eseeeeese******                36
Training Programs and Other Activities   .......             36
Issues  -......    .                                         37
Recomendations ....................su***eSS                  46
Role of the External Assistance ..............               55
VIII. CURRENT REGIONAL INITIATIVES
Introduction ............eueesee**esse*s6005***              55
SADCC Study an Improving Mnagemnt in
Southern Africa      6.............................          i6
Regionalization of the Accountancy Professide.               58
IX. RECO(KENDATIONS FOR REGIONAL COOPERA?IOI
Introduction  ............                                   59
Regional Cooperation *      ........................         60



AUKU AM !WS
I -   Fcetors Affecting Mangerial Iffectivesmcs
2 -   Governing 3oard of Instltuta of Development Managment
3  -   Qualiflctioans of IDM Faculty
4  -   Detailed Income and Expenditure Account 1982-1985
5 -   Institute of Developmet sMageaent Details of 1985 Programs
6  -   Institute of Development Managment -
Partclipation from VS and Other Coutrioe  Since 1978
7  -   Institute of Developmet Naagmont -
Number of Courses, lartielpant e     and Participants,
1975-1984
8  -   Inatitute of Developmt Management -
Pattern of BLS Participation in UK Progrms 1978-1984
9  -   Institute of Delopmet Nanagment -
One Country Participation Courses 1978-1984
10 -   Institute of Developmet  anagemnt -
Number of alauced Partielpation Courses 1978-1984
11 -   Institute of Developent Management -
Percentage of Participants in 1984 frou Different Employment
sectors
12 -   Proposals for Upgrading IDH'. Botswana Facillties
Bibliography.



SUNNAr AND COLUSIOES
Purpose and Objectives
I.         This study arose out of concern that a shortage of management
skills is a constraint on the economic development of Botswana, Lesotho and
Swaziland. This concern emanates from the fact that the Government is the
largest single employer in the three countries, and public servants play
major roles in influencing the course of economic development, through
formulating policies, setting the public policy framework and implementing
the policies. In addition, they are responsible for monitoring and
overseeing compliance with government aUlocative, redistributive and
regulatory policies by the private sector agencies. Given the importance
of their roles, the cost of mismanagement in the public sector can be high
and managerial improvements can have Important benefits for development.
ii.        The purpose of the report is to anAlyze the capacity of the
Botswana, Lesotho, Swaziland (BLS) Governments to train public servants to
be managers and administrators of the departments, ministries, and
parastatals under their control. Broadly stated, the objectives of the
report are: (a) to assess on the basis of existing information, the
administrative and managerial training needs of the three countries; (b)
evaluate the capacity of existing training institutions to provide the
necessary training in the most cost-effective way; (c) delineate areas
where training efforts could be rationalized; (d) evaluate efficiency of
existing personnel management policies; and (e) make recoomendations on
future action by the goverments as well as areas of external assistance.
iii.       The major emphasis on the report is to identify problems and
needs where action can bring about improvements, it does not focus at any
length on the achievements and successes of the Governments of which there
are many, viz the high level of efficiency of the Botswana Civil Service,
the commitment to reform of the Lesotho and Swaziland Governments, and the
existence of excellent agricultural management and accountancy training
institutes in Swaziland and Lesotho.
I.  MDA  DElOPET IN RLS
iv.        The BLS countries share a common pre-independence heritage and
have similar civil service organizational structure, although there are
some variations. The Civil Service plays a very significant role in all
three countries, not only in terms of setting economic development strategy



- ii -
and providing essential governmental services, but in terms of determining
employment and wage policies, localization policies and guidelines for the
parastatals and private sector. Whereas most senior management positions
have been localized in the Civil Service, the managerial and technical
cadres in the parastatals, and especially in the private sector are
predominantly expatriates. In both the Civil Service and the parastatals,
senior positions are filled by transfers from parts of the Government,
although some promotions from within take place as well.  Recruits into the
administrative and managerial cadre are normally university graduates,
although some individuals, especially in the Civil Service, can be promoted
into supervisory first line management positions from subordinate
positions. The most carefully structured management development programs
are found in the private sector and in some parastatals, whereas within the
Civil Service, management development is seldom as systematically pLanned
and managed.
II.  DETEDINATS 01 VUJUGOFl&L  PFECTIVEMNES
v.         The lasting value of managerial training is dependent on the job
coatext and climate in which the participants function, and more
specifically on the prevailing management and administrative arrangements.
In the BLS, effectiveness of public sector management is a product of many
interrelated factors such as supply of potential managers, educational
backgro-und of prospective candidates, the effectiveness of existing
administraLive systems and procedures, and the effectiveness of existing
training programs both local and overseas. Although these factors may not
have the same weight in all countries, nonetheless their combined effect
will determine the level of efficiency of public service management.
III.  IMPORTANT PUBLIC SECTOR  TA3UUIUfN           MEU3S
vi.        The following training needs were identified.
(a) Trainlng of new managers in the following areas:
(i) The major functions and processes of Government, including
the structure and roles of the Civil Service;
(ii) Managerial roles and responsibilities at different levels
in the Civil Service hierarchy;



- iii -
(CIl)  Names Resource Management: basic principles of managing  nd
mstlvating staff; training and development; discipline; job
design; delegation and supervision; as well as personnel
procedures and regulations;
(iV) earoonmel effectiveness training--how to operate
comatructively within the system; how to influence opinion,
mmd how to react realistically to current managerial
problems and demands.
(b) Tr daUiU in Policy in the following areas:
(1) oe evaluation of government policy;
(11) lbe long-term national development plan and its underlying
purposes;
(lii) Umderstanding of the past and current opportunities and
problems in accomplishing Govcrnment policy goals;
(tv) TO policy of major sectors, and their relationship to one
anotber;
(v) nscal and financial policy;
(vi) Mao gerial policies within the Civil Service, including
policies related to staff employment and development.
(c) Tra  lg in Delegation and Assuming Managerial Responsibility
ipcikely  is:
(1)  Fanction-specific/technical training for managers
tranferred across ministries;
(ii) Training in analytical thinking, proposal design and
presetatlon, feasibility testing, and project appraisal
shills;
(Ii1) Trailnng for senior managers in organizational incentive
structures, methods of coaching and delegating to middle
level managers, approaches to motivation, and to dealing
with ineffective managerial performance.



- iv -
(d) Training in Financial Management and Accounting especially in the
following:
(1)  Nature of Government accounting and financial management
policies, regulations, systems and procedures;
(ii)  Understanding managerial accountability for financial
management at each level in the hierarchy;
(iii) Objective setting, work programming, and budgeting methods;
(iv)  Methods of financial monitoring and cont-ol;
(v)  Methods of evaluating budgetary performance against
objectives accomplished.
(e)  Training in Planning and Management specifically in the following
areas are:
(i) clarification of areas of individual and shared
responsibilities;
(ii)  techniques of economic and sector planning;
(iii) techniques of project design and project management;
(iv)  techniques of team-building and facilitation across
functional boundaries.
IV.  BROAD iFCDIKTNDAIIONS ON MANAlUIhINT X V LOPXKC  AND TRAINING
vii.       Specific recommendations relating to management training and
training institutes are discussed in the country annexes. Some of the
common recommendations covered in more detail in this report include: need
to develop a national approach to management development; need for improved
preparatory management training specifically at the university; need to
strengthen the national training institutes; need to improve the management
of overseas training ,and to use attachment process as a method of training
managers; need to develop professional associations of personnel officers;
need to develop skills in management consultancy within the region, and
need to coordinate donor activities in the area of management training.



V. PERSONEL NAXAGEMT, LSSUS AND
viii.      In all the three countries, since independence the Civil Service
personnel functions have focused on the challenging and vital tasks of
localization,-identifying, recruiting and developing local expertise, and
managing the continued dependence on expatriates in those areas where local
expertise is in short supply. Common weaknesses In the personnel functions
include: (a) outdated or unclear personnel policies and regulations; (b)
lack of personnel planning systems; (c) lack of systematic approach to
management of in-service training; (d) ineffective use of expatriates as
trainers of counterparts; and (e) the low quality of the personnel cadre.
The recommendations include: (a) improvement and enforcement of existing
personnel processes, policies and procedures; (b) Improved humnan resources
planning based on upgraded Personnel Management Information Systems; (c)
skills training of personnel officers; (d) better management of in-service
training by mandating a specific official in each Ministry with the
responsibility for coordination, planning, and implementation; (e)
development of a set of guidelines on in-service training for managers and
personnel officers. To improve the management of expatriates and
counterparts, each Ministry should prepare an annual counterpart training
and development plan, and each central personnel office should develop a
process for evaluating performance of expatriates as trainers. Because of
the importance of management services functions in facilitating
improvements in the management of the Civil Service, it is recommended that
special attention should be given to upgrading the quality of management
services officers. Recommended actions include: use of carefully selected
technical assistance; review of entry level requirements; and creation of
training programs which combine in-service training, overseas
attachments and consulting experience outside the Civil Service.
VI.  NATIONAL TRAINING INSTIUTrS
ix.        Management and administrative training in the Civil Service is
provided either by the local training institutes or by external training
sources, and to some extent through on-the-job training. Some of the
parastatals have their own training units and facilities, but rely strongly
on external training mainly provided by bilateral agencies. Local
management training institutes fall into six categories, namely: (a)
institutes which offer training in basic bookkeeping, administrative, and
secretarial skills; such as Swaziland College of Technology (SCOT), and
Commercial Training Institute (CTI); (b) institutes which offer orientation
and low level courses; such as Botswana Institute of Administration (BIAC),



- vi -
Lesotho Institute of Public Administration (LIPA), and Swaziland Institute
of Management and Public Administration (SIMPA); (c) universities which
offer programs in B.Com and public administration; (d) speciallzed training
institutes such as Business Training Center (BTC) in Lesotho, the Swaziland
Small Enterprise Development Corporation (SEDCO), and Botavana Development
Corporation (BDC) which offer training in business management; (e) regional
institutes such as Institute of Development Management (IDM); and (f)
private management and training consultants. Training in accountancy
is still at a rudimentary stage except for the significant advance made In
Lesotho with the assistance of Irish Government. In both Swaziland and
Botswana, existing programs need rationalization and once the Institutes of
Accountancy are developed, a coherent framework should emerge. The
proposed Centers should benefit from Lesotho's experience. Although all
three countries give priority to the development of local entrepreneurs and
businessmen, there is no strategy for ensuring that the ones which have
emerged, have the necessary skills to function as successful businessmen.
A consolidated effort is required to identify the training needs and to
devise an effective method of imparting the needed skills. Detailed
evaluation of the major national training institutes are provided in the
accompanying country volumes.
X.         The major recommendations relating to the training institutions
are: (i) there is a need to exercise stronger influence on the universities
to ensure that the training programs, especially in the area of general and
financial management, are less academic and more practically oriented to
the needs of the countries; (ii) although each National Institute of Public
Administration (NIPA) has made Important contributions towards meeting
its respective country needs for orientation and basic public
administration courses, the quality of programs is not high. The NIPAs are
constrained by their inability to attract high caliber staff because of
their salary structure, and they therefore, are not able to cater to the
training needs of the senior managers in the public and private sectors.
The development of each NIPA as an important national training institute
should be a long-tern strategy. In the medium term, each NIPA should
concentrate on upgrading the quality of its faculty and program to suit the
requirements of its clientele; and (iii) cn accountancy training, Swaziland
and Botswana should draw from the experience of Lesotho's Center of
Accounting Studies (CAS) as a basis for their proposed accountancy training
programs.



- vil -
VII.  DISZnUUlU 0F IUYULOPfN    IAEAUT (INK)
xi.        IDM, with its headquarters in Botswana, is jointly owned by the
three governments and has training facilities in each country. In addition
to its training functions, IDN offers consultancy services to the public
and private sectors. Currently, its facilities are being used for some EDI
(World Bank) courses. OND finances between 75 percent and 80 percent of
its expenses out of its self-generated income. The analysis of its course
participation over the years shows that over half of course participants
are from Botswana. Lesotho's participation rate has declined consistently
since 1979. The general perception in Lesotho and Swaziland is that; IDM
competes with LIPA and SIMPA for participants and that programs of IDM and
these NIPAs overlap. In this regard, BIAC-Botawana's NIPA, in 1983 agreed
with IDM on terms of reference for each institute, which mandated IDM to
focus on middle and senior management training in Botswana's public
service, and BIAC to concentrate on supervisory and lower level training.
LIPA and IDM are in the process of reaching agreement on some type of
collaboration and similar actions are needed in IDE's relationship with
SIMPA. The key to the future development of IDM is creating an
understanding with its major clients on its role and its relationship with
the NIPAs. It is recommended that UDM be mandated to provide high quality
training to middle and senior managers in all the three countries, provide
consultancy services aimed at iuproving public sector management, and act
as consultants to the NIPAs in developing their programs and in training
their staff. IDM should be given the right to establish a more flexible
fee structure for its courses and other services. However it can charge
lower course fees to its government clients by converting the current
subvention to subsidies for civil servant participants. IDM shculd
aggressively seek clients from the private sector. To accomplish its new
mandate, IDM would need to upgrade the quality of its staff and its
facilities. It is recommended that IDM seek financial support from
bilateral and other sources. More specific recommendations on IDM are
presented in paras. 7.26 to 7.34.
VIII. CIJIRnET RUGICL IRITOLATIVES
xii.       Because of concern over the quality of management training in
the area, there are currently a number of regional initiatives under way.
One of these initiatives is a SADCC sponsored, USAID financed study
entitled Improving Mnaement in Southern Africa.  Among its major
recommendations are: (i5 the estats ishent or a Management Development
Resource Center (MADREC); (ii) establishment of a School for Business and



- viii -
Paraestatal Management; (iii) reglonal training program for Permanent
Secretaries; (iv) improved tralning methods for Professional Accountants;
(v) development of a post-graduate program In Public Administration and
Management. A second regional initiative is a proposal for the
regionalization of accountancy profession, presented to the First
International Congress of the Lesotho IlstitutL of Chartered Accountants,
including the establishment of a regional association to coordinate
standards, training, and internatiunal relations for the accountancy
profession in the SADCC region.
IX.  RECCMKUEDAIOES FOM REGIOGEL COOPDmoiEI
xiii.      The major recommendations on regional cooperation emanating from
this study are:
(a) Training Needs Assessment- Botswana's experience in this
regard through the Botswana Work Force and Skill Training
(BWAST) project, could be used as a model for training
needs assessment in the other countries.
(b)  National Seminar on Labor Productivity   The three
countries should consider a joint workshop on labor
productivity which should involve key government officials;
and parastatal and private sector managers.
(c) Development of Accountancy Training- Botswana and
Swaziland could benefit from the experiences of Center for
Accounting Studies (CAS) in Lesotho. All three countries
should share curricula, and instructional materials, and
over-time, should move towards common qualifications for
accountants.
(d) Management Services Units (MSU)- Since all countries have
in-house management consulting arms, the three units should
exchange ideas occaaionally. It would also be desirable to
consider staff secondment and joint training programs.
(e) Senior Management Workshops- These workshops could be
sponsored by IDM with the help of EDI, or Mananga
Agricultural Management Center (MAMC) in Swaziland.



- ix -
(f)  Cooperation Among NIPAs would be desirable and IDM should
play a lead role In helping to coordinate regional
initiatives.
(g) University Collaboration would be desirable in areas such
as the establishment of a post graduate management degree,
and in the provision of specialized programs where numbers
of participants in each country are too low to Justify the
same programs at each univer'ity.
(h) Collaboration Among Professicnal Associations would help to
establish regional standards and coordinate training,
resources, and facilities.
xiv.       Specific country recommendations are included In individual
country volumes and highlighted in their respective summaries (Botswana in
Volume II, Lesotho in Volume III and Swaziland in Volume IV).



Purpose of the Report
1.        This study arose out of concern that a shortage of imnagement
skills is a constraint on the economic development of the Botswana, Lesotho
and Swaziland. This concern emanates from the fact that the Government is
the largest single employer in the three countries, and public servants
play major roles in influencing the course of economic development, through
formulating policies, setting the public policy framework and implementing
the policies. In addition, they are responsible for monitoring and
overseeing compliance with government allocative, redistributive and
regulatory policies by the private sector agencies. Given the Importance
of their roles, the cost of mismanagement In the public sector can be high
and managerial Improvements can have important benefits for development.
Regardless of their functions, public servants must possess specific body
of conceptual knowledge, skills and attitude relevant to their tasks, and
personnel policies must be designed to motivate them. The purpose of this
report is to analyze the capacity of the governments to train public
servants to be managers and administrators of the ministries, departments
and parastatals under their control. Although mnagement and
administrative training is an essential ingredient in the creation of a
well managed government, training is affected by the administrative and
managerial environment within which it takes place. In the three
countries, as In many other countries, the attributes of that environment
such as: personnel policies, styles of management, and procedures
governing decision making, contriDute to the degree to which the training
is utilized effectively. Given the important effect of mnnagerial
environment on the usefulness of training, this report examines a broad set
of the issues affecting public sector management in these countries.
Objectives
2.        Broadly stated therefore, the objectives of this report are:  (i)
to assess on the basis of existing data, the administrative and managerial
training needs of the three Southern African countries-Botswana, Lesotho,
Swaziland; (ii) evaluate the capacity of existing training institutions to
provide the necessary training in the most cost effective way; (iii)
delineate areas where training efforts could be rationalized to achieve
maximum efficiency of resources expended; (iv) evaluate efficiency of
existing personnel management policies; and (v) make recommendations on
future action by the Governments as well as areas of external assistance.



-2-
Report Organization
3.        The study covers three countries which have many areas in common
but which In many respects are dissimilar. All the sore common issues are
discussed in this main report. Specific country issues are discussed in
the individual country specific voluse.
Outline of the Main Report
4.        Chapter I highlights the similar organizational and managerial
practices and arrangements in the three countries.
Training is only one of a number of factors which have an impact
on management effectiveness. Other factors such as work situation
effectiveness of training institutions are equally important. These
factors are discussed in Chapter II.
There has been a variety of training needs analyses carried out
within the last five years. The most important needs identified are
summarized in Chapter III.
Chapter IV summarizes specific recommendations on management
development and training.
Chapter V examines some important aspects of the operation of the
personnel function within the BLS Civil Service, and summarizes
some common areas where improvement is needed.
Chapter VI summarizes existing national training programs.
In Chapter VII, the programs and activities of the Institute of
Development Management (IDS) are discussed and evaluated and
recommendations made on its future.
Chapter VIII summarizes existing regional initiatives.
Chapter IX presents recomendations for regional cooperation.



I.*  _A    U   DUEOI!fINT IN NJ
Overview
1.01     Although all BLS countries have mny things in common, their
diversity and special characteristics mst be recognized. Any
generalizations uade on managerial issues and management development in the
three countries must be qualified. The major emphasis of the report is to
identify problems and needs where action can bring about Improvements, it
does not focus at any length on the achievements and successes of the
Governments of which there are many, viz the high level of efficiency of
the Botswana Civil Service, the recent development of the Lesotho Institute
of Public Administration (LIPA), the achievements of the Nanageent
Services Division (NSD) in Swaziland, the commitment to reform of the
Governments of Lesotho and Swaziland, and the existence of excellent
agricultural management and accountancy training institutes (The Center for
Accounting Studies (CAS) in Lesotho, and in Swaziland, the Nananga
Agricultural Management Center (AMC)). The Institute of Development
Management (IDI)- a regional institute-has yet to realize its full
potential. However, it is providing useful training, especially In the
health sector, and is gradually widening the scope of its umnagerial
training. The three National Institutes of Public Administration (NIPAs)
are also playing useful roles in orientation training for the public
sector. The focus of this report is largely on problm and weaknesses
which would require the Iwbilization of considerable internal energy and
commitment, as well as sustained assistance from the donor comunity. The
following section highlights the similarities in the organizational and
managerial practices and arrangements in the three countries.
1. Public Sector Managerant Roles
1.02     In all three countries, the Civil Service plays a central role,
not only in terms of delivering the wide range of governental services and
overseeing the economic development of the countries, but also as major
employer in the formal sector. It determines employment, wage policies,
and localization policies of the parastatals. Its policies have
considerable effect on the private sector. The existing management
training institutions in the three countries concentrate on meeting the
training needs of the public sector. Despite the differences and
distinctive features of the three countries, management plays similar roles
throughout the region. In the Civil Service, the unagcment structure and
operating methods reflect their British colonial heritage although each
country has distinctive national institutions. The =st senior mnager of
a ministry is the principal or permanent secretary, reporting to a minister



- 4 -
of state, and responsible for implementing the policy and plans, and for
the administration of the omanagement structure and staff of the ministry.
He is assisted by a deputy and generally one or wre under secretaries,
usually in a central administration unit. Specific functions within
ministries are organized into departments or offices managed by directors
or equivalent o'ficials with 'chief' functional titles, or titles like
acommissioner." Below these middle managers-there Is generally an
infrastructure of first line managers and supervisors whose titles range
widely, often indicating seniority (chief, principal, senior officers)
rather than specifically managerial functions. Most managerial positions
in the Civil Service of all three countries are held by local citizens,
although expatriates play important roles in advisory and sometimes
managerial positions.
1.03      There are important differences in the roles of managers in the
Civil Service and the parastatals. Generally, senior parastatal managers
are responsible for a compact and clearly defined managerial structure;
whereas in the Civil Service, a permanent or principal secretary often sits
at the top of a large dispersed administrative structure with wany
different functions and specialized units. It is easier for a senior
parastatal manager to form an overview of the efficiency and operations of
his management team than is the case for his equivalent in the -Civil
Service. Another important difference is that whereas the Civil Service
manager is predominantly concerned with administration and policy
formulation, the parastatal manager in addition to his running an
enterprise and managing a team of managers uust also be conversant with the
technical aspects of his organization. Parastatal managers therefore need
a combination of both managerial, entrepreneurial and technical skills, and
an awareness of Goverrnment policy and economic development goals. Senior
parastatal managers often have clearer accountability for financial
management and accounting operations in their organizations, than is the
case with senior Civil Service managersl/ who operate within a structure
of financial management regulations and procedures, which is to a greater
or lesser extent managed from the Ministry of Finance. Although senior
Civil Service administrators frequently make excellent parastatal
executives, this is not always the case, because of their lack of skills
and experience needed to manage a technically oriented and often relatively
autonomous parastatal organization.
2. Management Development
1.04       In both the Civil Service and the Parastatals, the most senior
positions are generally filled by successful individuals transferred from
another part of the Government or public agency. In the parastatals, it is
often the practice to develop levels of management internally, whereas the
I/ This is not the case in Botswana where Permanent Secretaries are given
clear financial management accountability.



- c.1
Civil Service combines the practice of internal development within a
ministry, and reassignments across ministries, to fill their managerial
positions. Both parastatals and the Civil Service consciously recruit a
pool of future anagers and administrators, often competing for the most
promising graduates from their national universities. There are many
variations within the BLS civil service administrations and parastatals in
the methods used to develop managers. However the rDst carefully
structured development prograns are likely to be found in some of the
parastatals, in which a small training section administers a planned
program of orientation, technical training, on-the-job assignments with
increased level of managerial responsibility, attendance at specialized
seminars, and post-g. atuate training2/. These management development
schemes way often l.ok more iupressive on paper than they are in practice,
and even in the most carefully planned parastatals there are instances of
early promotion before individuals have acquired sufficient experience
primarily due to lack of skilled manpower and knowledge required iz .the
post. But these at least represent attempts to manage the process of
ind'vidual development and to establish standards. These schems are often
associated with localization plans under which a parastatal has a
commitment to transfer a given number of managerial positions to local
citizens by a set date.
1.05      Within the Civil Service, management development is seldom
planned and controlled in quite as systematic-a fashion.  Sow cadres (such
as the accountancy cadre in the Botswana civil service), are taken through
a carefully designed series of educational processes and assignments prior
to promotion to different supervisory or managerial levels. However such
structured processes are the exception rather than the rule, and methods
like in-service training linked to examinations and certification standards
(as operated effectively at one time in Lesotho) are found infrequently.
Promotion in the Civil Service is more likely to result from a combination
of educational qualification (sometimes not directly related to the
individual's future responsibility) and length of time in a successful
assignment. In some cases, able individuals working in a professional or
technical discipline, may be promoted Into an administrative/managerial
grade with little preparation for the demands of the nQW role. It is also
quite common for a succcssful manager from one sector of the government to
be promoted to a higher position in another sector requiring very different
background knowledge and experience. As is the case within any
organizational structure, many such managerial appointmuent succeed because
the individual is able to adapt and learn rapidly in a new situation
despite the lack of a carefully structured development program . However,
this approach to management selection often fails, and is costly because of
the loss of competent technicians uispromoted into managerial positions.
2/ Notable examples are the development schemes worked out by the Lesotho
Telecommunications Corporation and the Botswana Development
Corporation.



1.08       The ahortage of individuals with the necessary managerial
skills, makes it difficult for the Civil Service to spend the time
necessary to develop future managers. The most sophisticated management
development practices in BLS can be observed in a handful of large private
sector organizations (De Beers and Barclays Bank are two examples) which
have the advantage of resources, external organizational support
mechanisms, networks and experience to mount well planned and comprehensive
program of management development, based on the interal needs and
characteristics of their organizations, using a combination of their own
training schools, external training and education, and very selective use
of local public training programs.
I1   DI113USUINAMS OF NANAE& TIAL
Introduction
2.01      Training is only one of a number of other factors which have an
influence on management effectiveness. It is important that these other
factors be studied in order to place into perspective the contributions
that training make, and to understand the interaction between training and
these factors. These factors include labor market supply of potential
managers, education background of prospective candidates, the effectiveness
of selection, existing administrative systems and procedures, etc.
Although these factors my not have the sawe weight in all the countries,
nonetheless, their combined effect determine the level of efficiency of the
public service in each of the countries. This section discusses the most
important of these factors, and explains the need for an integrated program
of change in which training is but one component. These factors are
schematically presented in Annex I.
1. Labor Supply Conditions
2.02       (a)  Pre-Management Education:  The quality of management is
strongly determined by the quality of recruits into the Civil Service. All
three countries rely heavily on recruits from local universities,
especially graduates in the arts (B.Com, public administration), although
some managers are promoted into the administration cadre from the ranks. A
major concern is the quality of the output of the universities and the
relevance of the programs to the practical situations which managers have
to face. Given the acute shortage of skilled manpower, gradnate recruits
are expected on entry to assume positions of responsibility for which they
often are not prepared. The universities are not able to meet existing
demand for managerial and business graduates. Although there are
induction/orientation programs for new recruits, the quality is variable.



(b) Competition from Other Sectors: The Civil Service competes
for recruits with both the parastatals and the private sector, and it does
not always select the best qualified candidates, given the level of its
initial salaries compared to the other sectors. To minimize the
competition, students on scholarship and fellowships are bonded to serve
the Government for a fixed period. Steps have also been taken, especially
in Lesotho, to close the gap between salaries of parastatals and the Civil
Service. Botswana has regulated salaries as a way of keeping spending
levels within the level set by the National Plan. While these arrangements
may help in the short run, the Governments need to develop a long-term
strategy for dealing with the lack of skilled manpower, especially at the
managerial and addinistrative level, and for retaining such persons. The
strategy should include (i) long-term measures to improve the methods used
for educating and preparing future managers; (ii) an agreement among all
sectors to collaborate in a scheme to prepare future managers; and (iii)
measures to improve the non-material incentives of management positions in
the Civil Service (levels of authority, range of experience, etc.).
2. Factors Relating to Work Situation
2.03       (a)  Selection and Preparation of Managers:  Because of the
acute shortage of candidates, and the pressing need For managers,
candidates for promotion, are often promising individuals with technical
and professional experience and qualification but with little managerial
experience. Planned preparation for managerial positions, through
assignments and on-the-job experience, is the exception rather than the
rule. Local in-service training, when utilized, is not always carefully
designed and structured around practical problems that the manager may
face. At the more senior level, poorly selected managers tend to
concentrate on routine administrative functions and neglect to provide
policy guidelines, training and discipline needed to draw out the best
performance from their subordinates. Although the conventional wisdom is
that managers learn through experience, management effectiveness in the
Civil Service can be considerably improved by sharpening the criteria used
for identifying managers, and by Improving the processes (both on-the-job
and outside training) of management development.
(b)  Clarity of Managerial Accountability:  Many BLS Civil
Service managers operate with some degree of ambiguity about the nature of
their roles and responsibilities. While this is true at a senior level3/,
it creates an even greater problem at the middle-manager level. Lack of
clarity about roles is aggravated by inadequate delegation of authority,
and unclear policies and objectives. Some civil service mnagers also find
that they are involved in tasks and activities which overlap with other
departments and ministries, sometimes with inadequate coordination and
3/ The finding at a recent principal secretaries' seminar in Lesotho is a
prominent example.



liaison among the various parties. Where a manager is unclear about his
role, authority, or the goals of his division, this inevitably results in
erratic delegation and unclear objectives to the staff who report to him.
While training in delegation techniques, and approaches such as
management-by-objectives", may contribute to a better general
understanding, the solution to such problems lies within the management
structure itself. Responsibility begins at the top of the hierarchy where
clear goals and objectives need to be modelled, and processes established
to define roles at each managerial level and ensure that the authority
appropriate to these roles is delegated. While there may be useful
conceptual models to guide this process, the best approaches would be those
determined by a management community meeting and consulting with each other
to design approaches suitable to local conditions.
(c) Quality of Systems and Procedures: Other constraints on
managerial effectiveness result from the systems and procedures which a
manager is required to ad-inister. In Lesotho and Swaziland, the Civil
Services rely to a lesser or greater degree on systems and procedures that
have evolved from previous colonial administrations, while in Botswana rhe
streamlining of procedures aimed at efficiency and accuracy is under way.
Where cumbersome procedures exist, there are frequently in the areas of
financial and budget management. These procedures often emphasize central
control at the expense of local managerial tuthority, and the elaborateness
of the systems leads to delay and errors. Each Civil Service has
organization and methods staff whose task is to develop and rationalize
systems and procedures, but the overall impression is that this work is
sometimes carried out piece-meal rather than on an integrated basis.
Although in time, the use of computers would help streamline Civil Service
administration, however, it is important that the existing msnual systems
and procedures be simplified and tested for their usefulness prior to
large-scale computerization in order to avoid the error of overcomplex and
over-demanding automated systems that afflict many organizations in
industrialized countries. This effort would require a collaborative effort
involving both experienced administrators, and organization and methods
specialists.
(d) Quality and Motivation of Staff: To some extent in all
three countries, the capacity of managers to deliver high quality work is
hindered by lack of motivation and basic skills among their staff. Low
commitment is in part an inevitable reflection of confused objectives and
poor communication and delegation at first-line managerial levels. Lack of
skills is the result of the modest progress made in secondary and
vocational education (both of which are BLS priorities). Iv some places,
Civil Service staff are described as unproductive and disinterested; in
others, they are regarded as undisciplined, with little respect for



- 9 -
authority. Clearly there are no single solutions to these problems. In
all three countries the Civil Service provides an important source of
employment, and governments are understandably reluctant to dismiss poor
performers. In part the solution will lie in improved human resource
management skills, better objective setting and performance reviews rewards
and incentives for effective output, and more consistent enforcement of
discipline by managers often reluctant to take such steps. These
improvements will require the active support of the personnel functions in
each Civil Service.
(e) Managerial Incentives: The single most Important factor in
the work situation which determines managerial effectiveness in the BLS
Civil Services Is the nature of managerial incentives. In the more formal
sense, these incentives lie in the reward structure-the salary system
performance evaluation, and the approach to promotion. Even more Important
however, are the incentives that exist in the climate and political fabric
likely to benefit from challenging traditional but outmoded ways of doing
things, from taking risks, from applying new concepts learned during
training and, from taking disciplinary action against ineffective staff.
The extent to which individuals are discouraged from such actions, or
encouraged to follow traditional ways would determine the impact of
training. It is In the nature of all Civil Service systems to be
politicized, and for individuals to be highly sensitive to the support they
have among sponsors in the hierarchy and to the impressions they are
creating through their actions. It is therefore, understandable that in
the volatile and difficult environment in which the BLS governments
operate, many managers would prefer conventional approaches rather than
appear to risk their future prospects by taking initiatives and by
challenging current practices. Clearly not every manager feels such
constraints and responds to such incentives in the same way-there are many
individual differences in terms of personality and previous experience.
However, to some degree in all three countries, there exists some repressed
managerial talent because of the way individuals interpret the incentive
structure. It is therefore important to combine management training with
open discussion among managers of their experiences with disincentives and
senior government managers should set examples (in their behavior) to their
subordinates.
2.04       Effectiveness of Management Training Needs Analysis: Ideally,
management training needs analysis should fulfill two purposes,- firstly
providing a clear description of the problem situations managers face and
the skills and knowledge they need to be effective in such situation; and
secondly providing an assessment of the level of effectiveness of each
individual (current or future managers) in terms of these essential skills
and knowledge. This information should be used for two purposes-firstly to



- 10 -
design the content of a combined on-the-job development (through
assignments, acting appointments and coaching) and off-the-job training
courses, and secondly to prioritize and plan the training of individuals.
Well defined training needs also provide a basis for evaluating the impact
of training, so that adjustments can be made where training falls short of
what is required. It is frequently the case that management training needs
are poorly analyzed, and the BLS Civil Services provide only a few
exceptions. Some of the moet promising initiatives exist in Botswana in
two areas. The BWAST program4/, while not specifically focused on
mAnagement training, is likely to provide a practical and useful model of
an approach to manpower development carried out through managers.
Secondly, several ministries (especially the Ministry of Health) have
conducted training needs analysis as part of the design of an in-service
program specifically tailored to the needs of the ministries. Elsewhere,
in the BLS Civil Service, training may sometimes take place at a regular
stage in individuals' development but with little systematic needs
analysis. At the other end of the spectrum, attendance at programs does
not emerge from analysis of needs, but rather as a general recognition of
an individual's advancement, or even as a reward.  In such cases the link
between the choice of program and the needs of the individual will be at
best vicarious.
2 .05     There have been several needs analyses exercises carried out,
many extensive, some by local institutions and some by donor agencies. All
of them to some degree suffer from the same flaw, regardless of how
sophisticated the method of analysis, they produce a somewhat generalized
list of global descriptions of areas in which greater managerial
effectiveness is needed, but the specific skills and context, which would
provide the basis for detailed training design, are missing. It is likely
in the long-run that the only really functional needs analysis can be
carried out close to the job environment, calling for collaboration between
senior managers and management training conDsultants from training
ins titutions. Large-scale analyses attempting to determine trends and
patterns are unlikely to reveal much not already known and are bound to be
too abstract to provide an operational basis for training design.
2.06      Use of Expatriates as Trainers:  Expatriates play an Important
role in the BLS Civil Service.  In some cases, they are used in advisory
roles; in other cases, in directing responsible managerial or senior
technical roles.  The best practice Involves a happy coincidence of
factors-an expatriate selected not only for his technical capabilities but
his skills and commitment to train a local person on-the-job; the placement
of the expatriate in the mDost appropriate position to use his skills and
experience; the identification of a suitable counterpart to work alongside
the expatriate; the design of the expatriate's assignment in such a way as
4/ Botswana Workforce and Skills Training Project.



- 11 -
to ensure that he has enough time to train the counterpart; agreements to
leave the ounterpart in position long enough to learn and then assume
responsibility; and a careful monitoring and evaluation of progress.
Unfortunately, these ideal circumstances do not always obtain. Sone
expatriates have little interest or skills in training. Some are placed in
roles where they are expected to accomplish output rather than train
counterparts. Suitable counterparts are not identified or are transferred
prematurely. Clearly these problems are not always easily avoidable.
There are often pressing tasks to be done and the expatriate is the only
person available to do them. Properly qualified counterparts cannot always
be identified and there may be pressing reasons for promoting or
transferring a talented counterpart before the period of training has been
completed. However, it is also true that opportunities to effectively use
and manage counterparts often go by default because the process and
necessary conditions have not been effectivey planned and managed.
3. Factors Related to Local Management Training Institutions
2.07       Training Courses Designed around Practical Needs: Because
training needs analyses are generally inadequate, it is no surprise that
the bulk of training courses at local management training institutions tend
to take their starting point from theory and conceptual models rather than
practical managerial needs and situations. Some of this theory is likely
to be useful in providing basic understandings, while some concepts
appropriate to complex organizations in industrialized countries, is likely
to be of little use. Unless the theory is linked to the manager's actual
situation, it may provide little beyond intellectual stimulation and could
even cause harm if its practical application is inappropriate. Trainers in
BLS are still heavily dependent on imported managerial concepts whose
universality is open to doubt, and which have yet to be adapted to local
conditions. As a result, civil service managers frequently describe
programs at local institutions as being impractical and out of touch. with
actual needs. Some local institutions, especially the IDM has had some
successes in tailor-making programs for specific group of government
managers, and despite the greater expense of such an approach, programs of
this kind are to be encouraged.
2.08       Follow-up and Evaluation of Training: Despite the fact that many
of the faculty of local training institutions are regarded as both
management trainers and consultants, the bulk of their activity consists of
running training courses. Many have had little actual experience as
consultants or for that matter , practical experience as managers. The
result is that trainers often have had too little opportunity to obtain
valuable insights and experience into operating management conditions.
Equally, the participants on training programs seldom receive the benefit



- 12 -
of follow-up consulting support from trainers, to help them apply what they
have learned to their job situation. Some institutions, including IDM,
have carried out useful consulting assignments, indicating that there are
both opportunities and needs to be met in this area. of course, the
faculty of local institutions would generally require skill upgrading to
function effectively as consultants. Equally sketchy among local
institutional activities is the evaluation of the impact of training.
Although there have been a few attempts to determine training impact, most
evaluation consists of course assessment by participants at the end of a
program, and at best provides feedback on learning methods and course
content, but does not provide a reliable indication of the effect of the
course on job performance, Training evaluation is notoriously difficult
and expensive. It is likely however that if trainers from local
institutes spend some time as consultants and problem solvers, they would
acquire the experience in assessing the impact of their training programs.
2.09       Reputation of the Institutions: Many local training institutions
are caught in a number of "double-binds-.  Their capacity to provide
Improved training depends on their ability to attract managerial
participants of a sufficiently similar caliber to upgrade the quality of
the programs. This, in turn is dependent on the willingness of more senior
managers to attend training at local institutions which is in itself
dependent on their perception of the quality and relevance of the programs,
and the quality of the staff. Because local training institutions bave
salary structures similar to the Civil Service, they have difficulty
attracting and retaining qualified staff capable of designing effective
programs for senior managers. In addition, there is a strong preference
for overseas training over local training. As a result, to remain active,
local institutions focus on the lower level of managers and supervisors
reinforcing their image as low level institutions. There is no simple way
to break the cycle except by an active program of institution development,
upgrading the relevance and quality of courses, developing faculty teaching
and consulting skills, introducing measures to improve the salary
conditions and career prospects of teaching staff, and an outreach program
in which the institutions present their programs to senior managers, and
demonstrate their capability by undertaking practical assignments.
4. Factors Related to External Training
2.10       External training, especially overseas training  is viewed as an
important symbolic stage in a manager's development. Frequently, the
accomplishment of an external degree is accompanied by automatic salary
increments and even promotion. This training is made available largely
through donor-funded fellowships. Some of these fellowships provide a
fairly wide range of choice as to the selection of the country,



- 13 -
institution, and type of program. Other fellowships are more closely tied
to a specific country or even program. In general, this training facility
is important, since national universities have not the capability to offer
certain types of specialized programs and training including post graduate
programs. It is difficult to evaluate overseas training objectively
because part of its signifieance is the prestige and recognition it
carries, and the much sought-after opportunity to travel and broaden
experience. There has been no systematic evaluation of the benefits and
consequences of such training. The best external training programs are
those tied to very specific development projects and of a technical nature,
or management training within a specifically technical environment5/. The
benefit of other types of training, especially programs in industrialized
countries, will depend largely on individual circumstances. However, it is
clear that often these programs are not chosen with the specific needs of
the country or the future role of the individual in mind, and while some of
these programs contribute to the broadening and intellectual growth of the
individual they may not provide the practical skills and techniques needed
for management assignments.
2.11       The general perceptinn is that such training has negative
consequences, for example, the training content is inappropriate to the
need of the country; that individuals are alienated from their cultural
setting; that returnees expect promotion as of right though they may not
have the experience required by the next level; that in many instances,
returnees are transferred too quickly sometimes to positions unrelated to
the skill acquired and many join the private sector or remain in the
country where training has been acquired. The Governments need to be
sensitive to the consequences of external training and to use any such
available opportunity selectively. Preference should be given to shorter
training programs, and to programs in other African countries.
III.  SUW T OI TEE 1MNM  IMPORTANT PUILIC SEW= NTaOt     G
Introduction
3.01       There has been a variety of training needs analysis/exercises
carried out in the BLS countries over the last five years (the bibliography
provides a partial list of those studied in the preparation of this
report). Generalizations about training needs are problematic because they
5/ The training scheme adopted by the telecommunications corporations,
using training institutions in Kenya, Malawi, and Scandinavian
countries is an example of a successful integration of out-of-country
training into a carefully designed training plan.



- 14 -
apply more directly to asme agencies of Government than others, and
individual agencies may have their own specific needs which do not appear
In these generalizations. In the country annexes which accompany this
report, a range of needs specific to each Civil Service is described in
some detail. Here the focus is on a few patterns which are prevalent
across the BLS region and government institutions, and which are worth
emphasizing and each contains a list of priority training needs.
1. Training of New Managers
3.02       Many civil service managers are promoted based on their
educational accomplishments, and talents demonstrated in a professional or
technical capacity, but without the experience necessary to fit comfortably
into a managerial role. These often very capable people lack an
understanding of the basic principles of managing and organizing, and the
techniques which are likely to work most effectively within their own parts
of government. Inexperienced managers are to be especially vulnerable in
the management and motivation of people. Off-the-job training provides a
useful introduction to the basic methods of management where such training
is designed around the actual conditions and problems managers face in
their roles, and not simply extrapolated from concept and theory. Even
more valuable is learning from experience, as long as it is carefully
managed through a series of planned assignments, each with increasing
levels of responsibility accompanied by coaching and feedback. The single
most powerful aid in the development of new managers is the selection of
experienced and able senior managers as mentors to help guide their
proteges through the complexities of managing in a government bureaucracy.
Priority Training Needs:
- The major functions and processes of Government, including the
structure and roles of the Civil Service;
- Managerial roles and responsibilities at different levels in
the Civil Service hierarchy;
- Human Resource Management: basic principles of managing and
motivating staff; training and development; discipline; job
design; delegation and supervision; as well as personnel
procedures and regulations;
- Personal effectiveness training--how to operate constructively
within the system; how to influence opinion, and how to react
realistically to current managerial problems and demands.



- 15 -
2. Training in Policy
3.03       A second area of importance, especially for less experienced
managers, is a thorough grounding in policy. Junior and middle level
government managers have a tendency to implement tasks in a mechanical
fashlon without adequate regard for the circumstances in individual
situations. This is generally a result of a poor grasp of overall policy
objectives, combined with the effect of over-restrictive or outdated
regulations. It is important that as managers are appointed to different
levels in the Civil Service hierarchy, they receive careful orientation in
the policies that underlie their responsibilities. These policies should
not be conveyed as immutable rules. Rather, the orientation should focus
on the underlying rationale, and emphasize the discretion that effective
managers are expected to display. In addition, to broaden understanding of
underlying policies, managers need a thorough grasp of the procedures that
govern the employment and development of staff. This is a prerequisite to
any effort to make managers more accountable for managing staff
development.
Priority Training Needs:
- The evaluation of Government policy;
- The long-term national development plan and its underlying
purposes;
- Understanding of the past and current opportunities and
problems in accomplishing Governmnt policy goals;
- The policy of major Government sectors and their relationship to
one another;
- Fiscal and financial policy;
- Managerial policies within the Civil Service, including policies
related to staff employment and development.
3. Training in Delegation and Assuming Managerial Responsibility
3.04      Senior government managers often experience reluctance or
inability from managers below them to take decisions or initiative. As a
result, senior managers are often overburdened with administration or
decision making which should be more appropriately exercised at lower
levels. Sometimes, senior managers may be justified in showing reluctance
to delegate responsibility because of doubts about the competence of the



- 16 -
middle level and junior managers. The inability or unwillingness to take
decisions or demonstrate initiative is a complex issue. In some cases, it
is the result of poor understanding of the managerial role and
responsibilities.  This can be remedied by a combination of systematic
orientation and refresher training, backed up by clear statements of
responsibility and managerial objectives. In soe cases, individuals have
inadequate grasp of the substance of the work of their units-the result of
overhasty promotion and inadequate preparatory training. This is a special
problem when younger managers are transferred from one part of governmnt
to another function requiring a completely different set of substantive
knowledge. This can be remedied by thorough job and function-specific
training and experience prior to promotion, and the use of short training
assignments and acting appointments. However the problems may be deeper
and lie in the way young managers are educated.
3.05      Many senior managers feel that the education system encourages
the absorption of knowledge and rote learning habits rather than the
cultivation of self-sufficient, critical thinking capacities, which would
prepare managers to take decisions and exercise responsibility. Many
managers work within an incentive structure which encourages or discourages
risk-taking. At a senior management level, there is a need to understand
how the incentive structure influences individual managerial behavior and
how to change the incentive structure to draw out the desirable behavior
from subordinates. Setting an example at a senior level is one of the most
powerful ways of influencing the behavior of middle and junior managers.
It is also important to improve senior managers skills in objective setting
and delegation.
Priority Training Needs:
- Function specific/technical content training for managers
transferred across ministries;
- Training in analytical thinking, proposal design and
presentation, feasibility testing, and project appraisal skills;
-  Training for senior managers at a number of levels in
organizational incentive structures, methods of coaching and
delegating approaches to motivation, and to dealing with
ineffective managerial performance.
4. Training in Financial Management and Accounting
3.06       One of the most important and wide-spread needs lies in the area
of financial management. To some extent (although this varies among the



- 17 -
countries), there is ambiguity about where accountability lies for
financial control - with management in the ministries and departments, or
with the central finance ministry. Procedures are often cumbersome and
outdated. Many managers lack the skills or interest to exercise effective
financial control. The negative results vary from problems in tying
budgets to plans and controlling expenditure, to gross financial
mismanagement in the most extreme cases. Accountancy training clearly
needs upgrading and should be an integral component of the training of
managers at any level. This training should be accompanied, where needed,
by clear statements of financial management accountability6/.
Priority Training Needs:
- Government accounting and financial management policies,
regulations, systems, and procedures;
- Understanding managerial accountability for financial management
at each level in the hierarchy;
- Objective setting, work programming, and budgeting methods;
- Methods of financial monitoring and control;
- Methods of evaluating budgetary performance against objectives
accomplished.
5. Training in Planning
3.07       Especially at the more senior levels, Civil Service managers
have an important responsibility to plan and coordinate a wide variety of
activities and initiatives, many of which cut across a number of
departments or ministries. In some places there are mechanisms which have
helped to produce effective planning and coordination. In others, there is
a lack of adequate planting ard coordination, leading to overlapping
responsibilities and actions, confusion about where decision-making power
resides, and neglect of certain functions that fall between ministries. In
such situations, managerial training is important a7though it is unlikely
to be useful if it simply takes the form of a seminar on planning
techniques. Rather such training needs to be conceived as problem -
solving workshops, where the managers from core planning functions are
6/  These generalizations apply especially to Swaziland and Lesotho.  In
the Botswana Civil Service there is a system of strong financial
controls and clear statements of financial responsibilities at the
Permanent Secretary level. However, there is still a need to develop
financial management skills at different levels of the hierarchy.



- 18 -
brought together to clarify roles and responsibilities, identify weaknesses
in coordination and planning systems, and collectively establish processes
and structures that will address agreed needs.
Priority Training Needs
- Clarification of areas of individual and shared
responsibilities;
- Techniques of economic and sector planning;
- Techniques of project design and project management;
- Techniques of team building and facilitation across functional
boundaries.
IV.  SWAK  OF BROAD
ERREPUMM AmD TRAIEIE
4.01      The last three chapters have identified a range of factors which
have an impact on the effectiveness of public sector management in the BLS
countries, and have snumarized some of the most important training needs
which apply to a large degree to Civil Service managers in each country.
Thls chapter summarizes some broad recommended responses to these factors
and training needs. More specific recommendations are contained in the
country annex papers.
(a) National Approach to Management Development. Given the
limited supply of managerial expertise in each BLS country, it is important
that each Government help shape an approach to management as a national
resource, and minimize competition for managers among different sectors of
the economy. Some components of this approach would include: a survey to
establish the existing stock of managers and the projected need for
managers at different levels in the civil service, parastatals, and private
sector; the development of improved approaches to pre-management training
at national institutions covering the needs of each sector; discussions
among representatives of the government, parastatals, and private sector
about different ways in which managers can move from one sector to another
in order to gain experience in a rational and managed fashion, not simply
as a result of competitive advantage (for example, secondments can be
considered such as the arrangements between the Civil Service and
parastatals in Botswana); and improvements in the way in which expatriates
are selected to ensure that they have the skills and commitment to develop
counterparts.



- 19 -
(b) Improved Preparatory Management Training.  To build upon the
current B.Com (which provides an important preparation in each country for
future public sector managers), it is recommended that (i) the university
faculties offering management training be strengthened; (ii) these
faculties divest themselves of lower level certificate programs that can be
more appropriately offered by other institutions; (iii) the increased
resources be used to introduce practical public administration and business
management options based closely on Civil Service case studies and case
studies from private companies; (iv) that consideration be given to adding
an additional middle-year to degree progrms devoted to a practical
organizational attachment; and (v) over time the universities experiment
with increased use of part-time degree programs for students already
employed in the Civil Service so that education, training, and practical
experience can reinforce one another. This development would be especially
attractive for mature managers without degree-level qualifications.
(c) Development of National Training Institutions. The
development of national training institutions will require an integrated
program with a number of components: improving the salary and career
conditions to attract and retain more qualified and experienced faculty;
increased contact between the training staff and government managers
through follow-up consulting activities; collaboration between training
staff and staff of government managermnt services units; improvement of
programs by orienting them more closely to management problews and
situations; increased use of selected governmeut managers as trainers; and
improved evaluation of the impact of programs. In summary, national
training institutions should develop their capacities through an integrated
program of research (to identify needs), training, consulting, and
evaluation.
(d) Twinning as a Form of Development.  While the strength of
BLS training institutions depends upon their national identity and the
appropriateness of their programs to country needs, there are advantages
for sowe institutions, especially (but not exclusively) tne universIties,
to consider the establishment of twinning arrangements with external
institutions. Twinning arrangements, based on the mutual recognition of
the individual identity and unique needs of each institution, can lead to a
useful exchange of faculty on special attachments, collaborative training,
exchange of materials, holding of management symposiums, and special
research projects, all of which can help in the development of local
training and research skills.
(e) Improved Management of Overseas Training.  To ensure that
overseas training is used effectively in the future, it is recommended that
a study be carried out on the impact of overseas training7/. This study
7/ The Directorate of Personnel in Botswana is planning such a study, with
the possible collaboration of the University of Botswana. In addition,
some donors carry out limited studies of this nature, but it is
recommended that such studies be made a formal component of overseas
fellowship aid packages.



- 20 -
should collect as comprehensive as possible a register of persons who have
returned from overseas training, and the types of programs attended during
the last five years; obtain an evaluation of the effectiveness of the
choice of program, its quality, and its relevance to the individual's needs
and working circumstances; identify the skills and other benefits
individuals have derived as a result; and track the career history of such
persons following their return, to determine whether they have had an
opportunity to use the training in their assignimnts, whether the training
had a notable effect on their career progress, and whether there have been
leakages to private sector or a brain drain out of the country. Based on
the results of this study, the criteria and methods of selecting
individuals for overseas training should be reviewed, and an ongoing
evaluation mechanism established to track experience In the future.
Consideration should also be given to maximizing the multiple effect' by
bringing overseas training specialists into the BLS countries to run short
specialist program.
(f) The Use of Attachments as a Development Method. An
alternative to long periods of overseas training for sowe Individuals, is
the use of attachments to outside organizations as a method of giving
individuals practical experience of managerial situations and techniques.
It is recommended that the BLS governints request donor assistance to
compile a register of organizations willing to provide such attachments,
together with an indication of the special benefits attachments to these
organizations can provide. These organizations should include as many as
possible in adjacent African countries, as well as a sample in
industrialized countries. Attachments can be a valuable developmental tool
not only for managers linked to succession planning, but also for
consulting staff in government management services' units, and for faculty
In local training institutions.
(g) Development of Professional Associations: An important
stimulus to the development of higher professional standards and more
relevant quality training, is the crestion of professional associations
drawn from the cadre, and vested with overall responsibility to expand
knowledge and oversee training curricula and exauinations. Such
associations can exist informally or be formally incorporated Into
institutes. An example of a successful formal arrangements is the
Institute of Accountants in Lesotho, and its training arm, the Center for
Accounting Studies. Similar steps are being taken in Swaziland and planned
in Botswana. The country annex papers make specific recommendations for the
establishbent of a professional association of personnel managers to help
upgrade the calibre of the personnel cadre and the quality of training for
personnel practitioners8/. In addition consideration could be given to
the formation of a Management Association representative of nanagement
8/ Botswana has now produced a proposal for the establishment of just such
an association.



- 21 -
across the various sectors. In each country there are already som
informal groups that attempt to play aspects of this role (for example
MADREC in Swaziland, and ATDO in Botswana). However, there would be
positive benefits from the creation of broader, formlly recognized
associations, whose role would be to establish standards, work closely with
local management training institutions, fund research, and hold symposiums
attracting external uanageumnt specialists. There are Management
Associations in many other countries who could be called upon for advice in
establishing local associations.
(h) Development of Consulting Skills: Over the last decade it
has been characteristic for public administration reform programs to
include a large quantity of funded consultancy technical assistance.
Invariably, the BLS administrations have had to rely on the importation of
expatriate management consultants. While many of these have made valuable
contributions, it is equally apparent that change and reform has been slow,
and many worthy efforts have been cut short with the departure of the
consultant responsible for the program at the end of the contractual term.
Government managers complain about the lack of implementation support and
long-term follow through that characteristies many such consultancy
arrangements. And in some cases the consultants are poorly matched to the
task at hand, lacking an understanding of the local culture and political
realities, and over-eager to Impose solutions that are simply Inappropriate
to BMS countries at their current state of development. On the other hand,
it is quite apparent that for many years to come, Civil Service
administrations, parastatals, and training institutions will be in reed of
management consulting assistance. This underlines the urgency of
developing local management consulting capacities. Each Government has its
own management services or 0 & M units which are training grounds in
consulting skills, some of the larger parastatals employ internal
consultants, and a few of the training institutions, especially IDK,
practice management consulting alongside more conventional training
activities. Nevertheless, there does not exist any systematic way of
developing management consultants within the BLS countries. Most new
consultants emerge from a first degree program (such as the B. Com, later
supplemented by an overseas MBA) and learn their trade on the job under the
tutelage of expatriate consultants. This wethod has produced some talented
local consultants but not in the number and consistency of quality needed
to reduce dependency on imported consultancy skills. Therefore, it is
recommended that the universities, 1D14, and the few successful local
consulting firms, collaborate on a project to develop a management
consultancy education/training/and apprenticeship program. Such a program
should combine specific academic training in consultancy related and
management skills, with periods of practical attachments and management
experience. It is also recommended that the universities seek support from
a successful overseas business college or universities with an established
consultancy skills development program.



- 22 -
(i) Coordination of Donor Activities. It is apparent that there
are a large number of donor agencies committed to help in the upgrading of
public administration and management development. This is demonstrated by
the many reports that have been produced, the range of proposals, the
on-going projects, and the groups of technical assistance personnel active
in different areas of government and training institutions. This donor
activity has contributed to defining issues and upgrading local
institutions. However, it is difficult to avoid the conclusions that in
some areas donor activities overlap, there are activities that are not
followed up productively, and there are many reports and proposals that go
unaddressed. The responsibility for coordinating and managing donor
activities is not always clear, and to the extent that some ambiguity
exists in this area, it is recommended that Government establish aspecific
comuittee to carry out a review of recent and current donor activities in
this area; assess their usefulness; identify those which appear to overlap
unproductively; identify those which have not received adequate follow up
and the reasons why; identify gaps which are not currently receiving donor
attention; develop strategies for attracting donor support in these areas;
and produce an overall framework for the future management, rationalization
and evaluation of donor activities. In addition, it is important that
donor representatives in each country take the initiative to develop
improved methods of coordination and agreement on basic approaches.
V.  18SUS AID                   RLIDT
Introduction
5.01      Personnel management has an important role to play in the BLS
Civil Service administrations, but as  s8 described in detail in each of the
specific country annexes to this report, the personnel function in each
country has many weaknesses and these are evident in sbortcomings in the
management of human resources at various stages-recruitment, training,
reassignment, pronotion, retention, etc. Large private sector
organizations in the BLS countries have the advantage of relatively greater
freedom from regulation, especially in the area of salaries and benefits,
and frequently have competent personnel functions able to devote themselves
largely to the need of the enterprise. In some parastatals too, the
personnel functions serve relatively compact and homogeneous organizations,
and many have been able to develop fairly effective internal human resource
management systems and processes,despite having to wori within some
restrictive Civil Service codes and regulations. In government, the
personnel function faces a far more demanding and complex task, the



- 23 -
administration of many systems and regulations across a vast, heterogeneous
organization, and frequently without the status, manpower, support systems,
or penetration to have the level of Impact they potentially might.
5.02      The Civil Service personnel functions have focussed in the years
since independence on the challenging and vital task of localization -
identifying, recruiting and developing national talent, and managi  the
continuing dependence on expatriates in certain important functiona areas
where local skills are still in short supply. Although the localization
efforts in the BLS Civil Services are still somewhat uneven, they
nevertheless represent one of the most notable areas of progress and
achievement accomplished by Civil Service personnel management
departments. In some respects, these achievements are in advance of what
has been accomplished in many parastatal and private sector organizations.
The BLS countries continue to face the dilemma of having to balance the
importance of localization with the need to ensure that they have an
adequate level of skill to ensure the efficient running of their private
and public sector ventures. For some years to come, expatriates will
continue to make important contribution in all sectors of the BLS
economies. However, it will be the task of personnel functions to ensure
that this resource is effectively identified and utilized to assist in
national development and in the strengthening of local skills and
know-how. The remainder of this chapter examines some iaportant aspects of
the operation of the personnel functions within the BLS Civil Services, and
summarizes some common areas where improvement is needed.
1. Organization of the Civil Service Personnel Functions
5.03      Each Civil Service has its personnel cadre represented by a
central personnel function.  However, the three countries vary in the
degree to which the personnel cadre is concentrated at the center as
opposed to decentralized. Swaziland has probably the most decentralized,
with Botswana the most centralized cadre, and Lesotho somewhere between
these two structures. It is common for larger ministries, such as
agriculture and education, to have a number of their own personnel
specialists in a small central group. In each country, the cadre has a
career hierarchy consisting of four or five levels. However the status of
the personnel cadre is relatively modest in all cases. Its relative status
within the grading structure is probably highest in Botswana. In mDst
organizational structures, the ratio of personnel staff to the overall
staff may be an indicator of the impact the personnel function can make and
its importance within the structure. It is difficult to assess accurately
the ratio of personnel staff to other staff in the BLS Civil Services,
because a number of staff without personnel titles carry some personnel
responsibilities. However, based on those who are formally members of the



- 24 -
personnel cadre, the ratio in all three countries indicates
under-resourcing9/. To some extent the size of the cadre may be off-set
by the prominence of the organizational location of the central personnel
function; for example, in Botswana it is located in the Office of the
President, and in Lesotho under the Cabinet Secretary Personnel; by
contrast, in Swaziland it is part of the Ministry of Labor and Public
Service.
2. Some Important Issues Related to Civil Service Personnel Management
5.04      The personnel functions in the three Civil Service structures are
by no means identical and it is difficult to make firm generalizations.
However, there are some common observations that apply to a greater or
lesser extent, sometimes to all three countries, sometimes to two of the
three countries. These issues have been described in detail In the country
annexes, so they will be given here in a sumary form only:
(a) Personnel Policies and Regulations: Personnel policies and
regulations are sometimes out-dated or unclear, and in the worst situations
contain contradictions. There is also frequently confusion as to where
personnel responsibility lies, and even a perception that government
managers have too little responsibility under centralized procedures, for
the management of their own staff.
(b) Personnel Planning Systems: To some extent the planning
systems in each country are hampered by a lack of up-to-date,
comprehensive, and readily accessible personnel information. Some progress
has been made in applying computer systens to personnel information and
planning, but by and large reliance is still placed on inadequate manal
systems.
(c) Management of In-Service Training: While some promising
progress has been made in Botswana in improving wethods of analyzing
training needs and selecting individuals for training programs, there is
generally room for substantial improvement in the way training is mnaged.
Despite the existence of some bureaucratic mechanissm to regulate
in-service training, individuals are still frequently selected for courses
without an adequate analysis of needs, and sometimes inappropriate courses
are selected. This is especially costly when training is carried out
overseas.
(d)  Management of Expatriates as Trainers of Counterparts:
Although this is not solely a personnel responsibility, nevertheless the
personnel function plays a key role. There are many instances where
expatriatea are effectively used to develop counterparts in Important
9/  The ratios are as follows: Botswana 1:150; Lesotbo 1:97; Swaziland
1:200.



- 25 -
functional areas. However, sometimes expatriates are poorly selected (with
little interest in developing an understudy), placed in inappropriate
assignments, or overburdened with functional responsibility which mitigates
against thelr playing a useful training role. In sow- cases the
counterpart is poorly selected, transferred during the assignment, or not
provided at all. It is not alvays even clear how many expatriates are
operating in the Civil Service or how many are expected to contribute
directly to the localization objectives.
(e) Caliber of Personnel Cadre: Each Civil Service has examples
of very effective personnel practitioners. However, many representatives
of the personnel cadre lack essential skills in personnel practices and
organizational processes. Although training in personnel skills is
available in the reglon, more comprehensive training is needed to upgrade
the professional standing of personnel management specialists in the BLS
countrieslO/. Their generally modest status in terms of grading is also
somewhat E a disincentive for highly qualified and experienced persons to
join the cadre. As a special sub-set, the related management services
functions play a potentially important role in providing internal
consulting help to management, carrying out organizational research
projects, and regulating systems and procedures. As in the case of the
personnel function proper, there are a number of competent management
services consultants, but mnay are very junior, inexperienced, and lack the
skills needed in such an important Civil Service support function. In the
case of both personnel and management services staff, there is a tendency
to recruit at a fairly low level of the grading structure, relying for new
entrants on new university graduates, who regardless of their academic
achievements are too inexperienced to operate in complex Civil Service
structures.
3. Recomendations
5.04.    (a)  Improvement and Enforcement of Existing Personnel
Processes, Pollcies and Procedures: The three governments, to a greater or
lesser extent, need to ensure that general orders or equivalent regulations
are revised, updated and enforced more consistently. In addition,
practical guidelines covering Important personnel management procedures and
responsibilities, would be especially useful to the personnel cadre and
line managers.
(b) Improved Personnel Planning Based on a Computerized
Personnel  anageent  formation System: To upgrade the quality of
personnel planning, it is recomended that comprehensive, accurate, and
accessible personnel record system be established under project groups,
with the objective of developing computerized systems to facilitate both
10/ The mst comprehensive appears to be the certificate offered by the
Institute of Development Management.



- 26 -
planning and analysis, and human resource budgeting. All three countries
will need, to some degree, Technical Assistance support in the design and
implementation of these systems.
(c)  Management of In-Service Training:  To improve the
management of in-service training, it is recommended that clear
responsibility be vested in an official in each ministry for the
coordination, planning and execution of in-service training; that attention
be glven to the improvement of Civil Service training policy and planning
mechanlisms; and that guidelines be produced to assist managers and
personnel cadre in managing staff development, to include an overview of
training options and development activities, approaches to training needs
assessment and planning, and methods of training evaluation.
(d) Management of Expatriate and Counterparts: It is
recommended that to improve the management of expatriates, ministries
should prepare an annual counterpart training and development plan to be
lodged in the central personnel management functions. The plan should
include a roster of all expatriates and counterparts, a development plan
for each counterpart, and a process for evaluating performance of
expatriates in counterpart development.
(e) Strengthening of the Personnel Cadre: It is recommended
that current personnel and management services vacancies be urgently filled
with qualified staff; that selective use made of externally
funded,expatriate personnel management experts in critical areas where
local staff are not available but with assigned counterparts; that based on
workload analysis, some alternative distributions of the personnel cadre
take place across ministries where there is an imbalance of resources in
decentralized systems; that professional training be designed to raise the
skills of the personnel cadre, in areas such as human resource planning and
administration, training needs analysis, career development, counselling,
communication, and institutional development.
(f)  Strengthening of the Internal Management Consul. ng
Function: Because of the importance of the management services functions
Tin helping to facilitate Civil Service management improvement, it is
recommended that special attention be given to the upgrading of these
functions. This should include, where appropriate, the use of carefully
selected technical assistance, a review of the entry level requirements
aimed at raising the caliber of new entrants; and the creation of training
and development programs involving a combination of in-service  -aining and
coaching, external courses, managerial and consulting assignments,
attachments to overseas consulting organizations, and institutional
development projects working alongside other skilled consulting resources.



- 27 -
VI.  SWAUM     OF WAIOEAL KlUUUT TUII"G InSTIIUTES
Introduction
6.01      Although the BLS Civil Services offer orientation and on-the-job
training for new recruits, .ll rely heavily on training provided by local
and overseas training institutions. Some parastatals have their training
steff and facilities which offer off-the-job function related training
supplemented by training at local institutes and overseas. Overseas
training is generally financed by bilateral agencies. Existing local
training  tencies fall into six broad categories.  This chapter summarizes
the information on existing national training progravs (The IDM which is a
regioual management institute jointly managed by the BLS countries is
evaluated in detail in Chapter VII).
1. Types of National Institutes
6.02      National Institutes of administrative and managerial training
fall into six categories:
(a)  Institutes Offering Basic Skill TrainLag:  The most basic
level of training in entry level clerical and bookkeeping skills is
provided by commercial/polytechnic institutes: such as Swaziland College of
Technology,Commercial Training Institute (Lesotho), and the Botswana
Polytechnic.
(b)  Institutes Offering Orientation and Public Administration
Training: Orientation and refresher training is provided by the Natlonal
Institutes of Public Administration-Swaziland Institute of Management and
Public Administration (SIMPA), Lesotho Institute of Public Administration
(LIPA), and Botswana Institute of Administration and Coume::a (BIAC).
While these institutes cater mainly to the public sector, and are run
essentially as departments of governmentll/, they all attempt to attract
parastatal and private sector participants, and in the case of BIAC there
is a fairly broad spectrum of participation. These Institutes appeal
mainly to supervisory and first line managerial levels, and offer a wide
range of bas'c skill courses related to different functions in the Civil
Service, generally as short stand-alone modules. BIAC has compressed its
different topics into three main streams of training-public
administration, accountancy, and secretarial, so that the different
subject areas are taught within an overall framework. LIPA also provides a
two-year certificate program in public administration.
11/ SIMP*. will probably be given greater autonomy in the future.



- 28 -
(c) University Programs. Graduate tralng is provided by the
separate national universities of each country, which once conotltuted a
regional university with centers in each country. The most important of
these programs is the B.Com, although individual universities also offer
other bachelor degrees in management and public administration, and
sometimes the B. Com is offered in accountancy and managerlal streams.
Although the universities have a tiny and irregular post-graduate program
(often catering to as few as a handful of students), none has yet developed
a Masters degree in business or public administration. The graduates from
the local universities provide the bulk of the future managerial pool in
the BLS public sector.
(d) Specialized Training Institutes: Specialized training is
provided by institutions with a more speclfie defined purpose. For
example, the Business Training Center in Lesotho, and parastatals such as
Swaziland's Small Enterprises Development Company (SEDCO), Lesotho's
Basotho Enterprises Development Corporation (BEDCO), and Botswana
Development Corporation (BDC)-prwvide training In business management and
entrepreneurial skills for local citizen caners of small fimes. nother
specialized training institution is the Center for Accounting Studies in
Lesotho, dealing with the training of accountancy up to the fully
professional, chartered level. Moves are afoot to establish siilar
accountancy training facilities in Swaziland and Botswana.
(e) Regional Institutes. There are Lwo Important regional
training institutions in BLS. One, the Institute of Development Management
(1DM) which because of its importance is discussed separately. The other
regional institution is the Mananga College of Agricultural anagement
(MAMC) in Swaziland, which is a CDC institution catering to all
Commonwealth countries, and attended to some extent by BLS
participantsl2/.
(f) Private Management and Training Consultants. Finally, there
are a number of active orivate management consultlg organizatlons In all
three countries providing some tracing as well as a wider range of
consultancy services. Some consulting practices from South Africa are also
active in the BLS region. These private consultants offer their services
mainly to the private sector, but also to some extent to the parastatals.
2. Summary Evaluation of Training Institutions
6.03       Detailed evaluations of major national training institutes are
presented in the individual country reports. This chapter contains some
broad generalizations on two groups of institutes:
12/ There is an ongoing study of the Mananga Agricultural Management
College by EDI of the World Bank.
.



- 29 -
(a) Universities. Although the universities vary to some
degree, all three offer similar graduate training for a future managerial
cadre. The syilabi of their programs are clearly well designed and
comprehensive. However, it is frequently pointed out by experienced
managers in tne Civil Service and the parastatals that, the degree programs
are largely academic and theoretical in nature, and do not provide the
necessary skills required by would be managers. The academic
focus of the universities would not in itself be as much of a problem if
graduates were given practical organizational experience prior to entry
into positions of responsibility. However, the reality is that the BLS
countries are desperately short of skilled manpower and cannot afford
extended periods of practical orientation that night be given to young
graduates in industrialized countries. The universities are used by both
the civil service and the parastatals as active hunting grounds for
managerial recruits, and in practice talented graduates are thrust quickly
into positions of responsibility where the academic and non-practical
nature of their training becomes evident. In a way, the function of the
tniversity is to educate and conduct research and not to offer vocational
training. However, in small resource-poor countries like the BLS, with
very urgent needs for trained personnel, the universities may have to
adjust to national priorities. Because some of the universities have been
somewhat reluctant to move in this direction, the BLS governuents, working
closely with managers from each sector of their economies, may need to
exercise stronger influence to reorient university managerial programs.
The universities are also sometimes criticized for producing graduates of
low quality. This is partly a reflection of the material they have to work
with and partly because of the emphasis on nemorization rather than on
problem solving and independent thinking. Graduates whose main
accomplishment has been to absorb Information often through repetitive
learning, are inadequately prepared, however intelligent, to face the
rigors and challenges of managerial life in the complex circumstances
managers face in the BLS countries.
(b) National Institutes of Public Administration (NIPAs). Each
of the NIPAs in BLS has striven to provide relevant orientation and
refresher training for the public service, and has made important
contributions, given their lack of resources. They have establisbed a
foundation upon which effective national management institutions with broad
sectoral appeal, could in time develop. However, at this stage in their
development, the quality of programs le modest. Managed closely by the
Government, NIPA pay and career structures are tied to the Civil Service.
As a result, they have difficulty attracting high quality faculty and
lecturers. New faculty members are customarily recruited directly from the
university, and lack experience and credibility as management trainers
despite their qualifications. As a result, NIPAs have problems attracting



- 30 -
senior managers from the public and private sectors as participants in
their programs. To some extent therefore, the capacity of the NIPAs to
develop their training policy and improve their curriculum content is
restricted by their Civil Service affiliation.  Each of the governments are
concerned about the slow development of their NIPAs, and have attributed
this in part to competition from the regional Institute of Development
Management (IDM) in the belief that IDM's programs overlap with those of
the NIPAs, and that IDM attracts participants who might otherwise have
attended NIPA programs. The issues of overlap of programs and competition
with IDM are fully discussed in Chapter VII, and in the Section on Training
Institutions in the country reports, and recommendations made on the role
each institution should play in each country. It has been suggested in the
country annexes that the development of each NIPA as a national management
training institution should be viewed as a long-term project involving
upgrading the quality of its faculty and programs. This could be
accomplished partly through technical assistance and partly by greater
involvement of NIPAs staff in consultation and attachment in industry to
develop practical experience of organizational problems and partly through
improvement in incentive structure to attract and retain qualified staff.
6.04       Training in Accountancy.  Accountancy training needs special
attention here because of the importance of effective financial management
in the BLS Civil Services. The most significant advance in this area has
been made in Lesotho, where with the help of the Irish Government, the
Center for Accountancy Studies (CAS) has established a fairly rational
structure for accountancy training at all levels. Pretechnician and
technician level training is provided by other local institutions, and
through a selective exemption policy, CAS has influenced the standard of
training at these other institutions. CAS itself provides training at the
professional levels, and has succeeded in producing the first group of
locally qualified professional accountants. Swaziland has just recently
passed an Act of Parliament establishing an Institute of Accountancy. In
Botswana, a draft act establishing such an Institute is being prepared by a
committee with members from the Government and the professional bodies.
All the three Governments regard the development of accounting profession
as a priority. In Botswana and Swaziland, existing programs need
rationalization and once their accountancy institutes have been
established, they should play a significant role in achieving a coherent
framework. This framework could be accomplished not by selecting one
institution to play the lead role, but by establishing separate Centers for
Accounting Studies in each country, with the mandate to carry out this
role. These Centers should work closely with the local accountancy
profession to maintain standards and regulate the process of granting
chartered status. These Centers need to be managed as joint ventures
between the Governments and the profession with close liaison with other



- 31 -
training institutions. However, the Centers should be given the authority
to determine training standards and frameworks, and to influence the
content of the B. Com programs which provide graduate entry into the
professional stream. It is important, that the new centers benefit from
the experience of CAS (Lesotho) in terms of their materials, and their
approach to training which emphasizes block release programs combined with
ongoing practical work experience rather than full-time programs. In
recent times, initiatives have also been taken towards establishing a
regional approach to the development of the accountancy profession. These
initiatives are discussed in Chapter VIII.
6.05      Training in Business and Entrepreneurial Skills:  All three BLS
countries share a priority of developing locally owned and manaeed
enterprises. Such enterprises are important because of their capacity to
provide employment, contribute to import substitution, and develop national
wealth and foreign exchange earnings. However, many of these enterprises
fail for a variety of reasons including lack of funding, technology
problems, market competition, and poor business management and
entrepreneurial skills. In all BLS countries, there are agencies helping
to develop such skills such as development corporations, small business
training centers, extra-mural studies, departments of universities, and
extension agents in government Ministries of Commerce and Industry.
However, despite such training, there is still a large unmet need, a lack
of suitable entrepreneurs for future development, and a depressing record
of failures and disappointments. It is clear that a new consolidated
effort is needed. This effort should attempt to: (a) consolidate the
various forms of training currently available; (b) emphasize training which
provides continuing on-the-spot consulting support and assistance; (c)
research the methods that work most effectively in BLS conditions; (d)
identify needs that are not being effectively met by current training; and
(e) explore the areas for regional cooperation. Special attention should
be given to successful entrepreneurial training ventures used in other
developing countries. Especially promising is the work of the
Eutrepreneurial Development Institute in Gujarat, India, which has recently
attracted the attention of a number of other East African countries. As
discussed in Chapter VII, IDM should be asked to spearhead a project to
help upgrade the quality and appropriateness of business management and
entrepreneurial skills training in the region, collaborating closely with
the other agencies providing such training.



- 32 -
VII.  INSTUE    in ILOINT                  (ID")
A UDGIORAL MANAGEMENT INSTITUTE
Introduction
7.01       The Institute of Development Management (IDM) is the leading
management training institution in Botswana, Lesotho and Swaziland, and the
only institution that is currently operating on a regional basis (with the
exception of Mananga Agricultural Management College which is a CDC
institution). Because of the current and future importance of IDM, this
chapter gives an in-depth description of the institute and its activities,
explores a range of issues relating to its future role especially in terms
of its market and its capacity to continue operating as a regional
institution and makes specific recommendations relating to IDN's role in
the three countries, and the need for it to develop a clearer marketing
strategy.
1.  Origins and Purpose
7.02      IDM was founded in 1974 with the help of CIDA and other donors,
with the puxpose of providing training for mid-career and senior managers
across the public and private sectors in Botswana, Lesotho, and Swaziland;
and to offer management consulting services to government, parastatals, and
private companies in all three countries. The specific activities of IDM
include:
(a) training in managerial skills to help improve management
performance in government, parastatals and private companies;
(b) identifying regional and national management training needs;
(c) raising consciousness of the importance of management especially
in a development context;
(d) acting as coordinator on management training with other
institutions in the region;
(e) offering consulting services, through advice on organizational
structures, facilitating management conferences, carrying out
studies and research, and maintaining a library of management
mL.erials.



- 33 -
2. Structure and Staffing
7.03       1DW operates am an autonomous organization, managed by a
Governing Board made up of representatives of government, Industry, and the
universities from all three countries, chaired by the Director of Personnel
(Botswana) (Annex 2 shows details of the Governing Board). The regional
office (and local branch) of ID is based in Gaborone (Botswana), and there
are branches in Maseru (Lesotho) and outside Mbabane (Swaziland). The
overall anagement of IDK is the responsibillty of the Regional Director
based in Botewana. The Swaziland and Lesotho branches are managed locally
by Country Directors.
7.04       Overall, 1DW currently has 36 full-time staff consisting of the
Regional Director, the 2 Country Directors, 12 lecturers (2 of whom are on
study leave)13/, and 21 administrative staff. In addition, there are 4
visiting lecturers, and 7 part-time lecturers. IDK also uses members of
the Civil Service, universities and parastatal  and private sector managers
as part time lecturers.  The full-time staff of ID  are distributed over
the three countries as foflows:
(a) Botswana: Regional Director
8 Lecturers
14 Administrative Staff
(b) Lesotho:    Country Director
2 Lecturers
3 Administrative Staff
(c) Swaziland: Country Director
3 Lecturers
4 Administrative Staff,
1WK has been able to localize all its full-time lecturer posts
and its entire administrative staff. Visitlig lecturers have been made
available with donor assistance. Five of the full-time lecturers have
Masters degrees, and another two Bachelors degrees (See Annex 3 for details
of the faculty qualifications).
7.05      Salaries for ID staff are paid according to salary scales
established by the Governing Board, Senior Lecturers (consultants earn
between P/K1I 15,158 and 17,490 per annum, While lecturers/consultants are
paid at three levels: between P/M/Z 8,162 and 10,494 per annum for entry
level; up to P/N/I 12,826 per annus at aid-level; and up to P/K/E 15,158
per annum at the level below Senior Lecturer/Consultant. The salary of the
Country Directors range from P/HJE 16,324 to 19,822 per annum. UK
salaries are slightly higher than those of NIPA faculties
13/ Study plans exist for three others by the end of the calendar year.



- 34 -
3. IBM Facilities
7.06       As indicated above, IDK has facilities in all three countries.
(a) Botewana facilities are located on the campus of the
University of Botswana, where there are offices, classrooms, a library and
audiovisual rooms, accommodation for 46 persons (two per room) and the use
of the university kitchen and laundry facilities. IDM makes some
additional use of the university's hostels, especially during university
vacation time. The Gaborone Sun Hotel, a short distance from IDM, offers
accommodation for senior-level participants.
(b) Lesotho facilities are located on government property
adjoining the Department of Manpower Planning. The building was erected in
1979 with EEC fiading, providing offices and one classroom. There is
accommodation for 8 persons, two per room. However, the lack of dining
facilities means that the accommodation is only irregularly used. IDM
Lesotho occasionally uses other facilities--accommodation and dining at the
Anglican Conference Center near IDH, and seminars at Mazenod, Catholie
Conference Center some 15km from Maseru, where the accommodation is modest
in quality.
(c) Swaziland facilities, provided by EEC, are located on the
cAmpus of the Swaziland Institute of Management and Public Administration
(SI4PA), and include offices, one classroom, and accommodation for 16
persons, two per room. SIMPA has accomodation for a further 24, two per
room. The combined accommodation could house 20 persons on a single
occupancy basis. Dining is available at the SIMPA refectory, and there are
some modest recreational facilities.
4. Revenue and Expenditures
7.07       Major Sources of Revenue!  IDM has two major sources of revenue:
subvention paid by member Governments and fees for its training and
consultancy services. Contributions from donors are generally in the form
of grants, gifts of equipment etc., provision of staff or the financing of
scholarships, reflected in the budget as donor support and/or sponsored
staff funds.
(a) Government Subventions. The annual subventions from each of
the three Governments are paid in their local currencies and equivalent to
50,000 units of each countries local currency. The contributions of
Swaziland and Lesotho are at par since both belong to the Rand Monetary
Area (RNA). but since Botswana is outside the RKA, the total amount of
income from subventions varies considerably with variations in the



- 35 -
Pula/Rand Exchange rate. In 1984, the currency exchange loss amounted to P
11,225 or 7.5 percent of the total amount from subventions. The major
donor support for IDM came from CIDA. Until 1982, CIDA funded the staff of
ILM and provided a large portion of the recurrent costs. This support was
gradually reduced until 1982 when it accounted for 17 percent of the total
revenue. AY 1983 when the support ended, only the Director of the
Institute was funded by CIDA. In that year, funds for donor support and
sponsored posts accounted for 11.2 percent of the IM's revenue and include
posts sponsored by USAID and the Dutch Government. In 1984, IDM received
no donor support funds but funds for sponsored posts amounted to P78,000 or
6 percent of the total revenue.
(b) Fees and Consultancy Services. Since its inception, the
policy has been to set fees for students and other services at the level
that would make the institute self-supporting. Income from student fees in
1982 was 65.9 percent of total revenuL and by 1984, it accounted for 75.3
percent of the revenue. Income from this source Is expected to amount to
77 percent of the total revenue or cover 75 percent of the total 1985
recurrent expenditure,  For its courses, rDM has two types of fees: a
tuition fee which varies according to the level of the course and a
residential fee to cover the cost of boarding and lodging as well as the
travel cost of students for their country to the course venue. IDM also
conducts tailor-made courses at the request of Government, p6rastatals and
private businesses. Income from this source is shown under consulting
Income. It also hosts conferences and seminars. In recent years, revenue
from consultancy, seminars and conferences has become important. The
projected income from this source in 1985 is about P 147,000 or 10 percent
of the total anticipated income compared with P 58,000 or 4.5 percent of
the income in 1984.  IDN's current fee structure is P 125 a week for
tuition only, rising to P 275 a week for tuition and accomodation, with a
declining rate of charges for courses over one week. Non-BLS residents pay
a 15.5 percent surcharge.  The fee structure is determined by the Governing
Board, baped closely on fees the respective BLS administrations are willing
to pay for government staff participation in outside programs.
7.08       Revenue and Expenditures (1982-1985):  TDl expects its revenue
to cover about 98 percent of its total expenditure in 1985. This compares
with 99 percent in 1984 and Is primarily due to exchange rate changes.
IDM's revenue is expected to increase from P 1.3 million in 1984 to P 1.5
million in 1985 due primarily to increased income from seminars and
conferences. Income from sponsored posts is expected to decline to P
13,000 in 1985 from   P 78,000 in 1984 (Annex 4).  on the expenditure side,
salaries, excluding non-sponsored posts, account for about 42.4 percent of
the total in 1982. The proportion is not expected to change in 1985.
Apart from staff costs, a major item of expenditure is participant costs,



- 36 -
which include board and lodging of participants. In 1982, this item
accounted for 24.1 percent of total expenditure and the proportion ie
expected to increase to 28 percent in 1985. Although this Item is
self-financed and is covered by fees, the proportion of these costs against
income has increased from 4.5 percent in 1982, to 9.5 percent in 1985;
which reflects the expense of moving participants from one country to
another. Expenditure in 1985 is expected to increase by about 15.6 percent
over its level in 1984.
5. Participation Rates
7.09       Since systematic records were first established, IDM
participation has increased greatly from 1014 participant weeks in 1975 to
a high of 5804 participant weeks in 1983, with some fluctuations between
years. The number of courses has risen from 13 in 1975 to a high of 67 in
1983. A further 65 courses are planned for 1985. Over this period, the
bulk of students has come from the BLS countries, although the program are
also attended by non BLS participants. Since country specific
participation figures have been recorded (1978), there has been an average
of 57 percent Botswana participants, 19 percent Lesotho participants, 20
percent Swaziland participants, and 4 percent non BLS participants. Over
time, there has been a notable decline in non-Botswana involvement In IDM
programs, especially in the case of Lesotho (Para. 7.12).
6. Training Programs and Other Activities
7.10       IDM's programs in 1985 are offered under eight broad headings:
(a)  Accounting and Finance, which include two basic accounting programs,
the tWo part (18 weeks) Certificate in Finance Management aimed at
preparing students for the Association of Accounting Technicians (AAT)
examination, two intensive AAT examination preparation courses, an
Internal Auditing program, and a Certificite in Business &
Mathematics;
(b) Communications, three courses in public relations, customer relationa
and communication for managers;
(c) A program in Educational Administration;
(d) Electronic Data Processing, an introductory course and a series of
short software instruction courses;
(e) Health Services Management, including Certificates in Health
Administration, and Nursing Administration, and a program for
supervisors of nursing units;



- 37 -
(f) Management, 20 different courses including Certificates in Management
(including the new Advanced Certificate), Personnel Management, and
Office Management, and a range of other courses in subjects like
manpower planning, organization and methods, purchasing management,
better work methods, and management information systems;
(g) Public Administration, including three certificate programs, in Local
Government Administration, Immigration Court Procedures, and Police
Court Procedures;
(h) Special Programs, including agriculture project management, energy
policy seminar, and training of management educators (See Annex 5
for details of 1985 courses).
7.11       In total, IDS offers ten Certificate Programs (lasting from 6 to
34 weeks), and for other courses issues Certificates of Attendance (for
seminars of two weeks or less) and Certificates of Completion (for those
who pass tests in programs of more than twe weeks).. However, to date, IDM
programs have not had external validation. IDM also offers some
tailor-made programs especially, although not exclusively for the private
sector, for example, Barclays Bank, and de Beers Corporation. In addition,
1DM has carried out some consultancy assignments and research activities,
and played an important role in conferences, such as the recent
Productivity Seminar in Botswanal4/, and the Regional Conference for Small
Business Development Organizations in Maserul5/. The overall quality of
IDM's training and consultancy activities is8aiong the best in the BLS
region. However, the fact remains that many of its faculty are relatively
Inexperienced, and although their programs are fairly sound, they need
upgrading in terms of teaching methods and materials. Some of the better
programs are those developed in the health sector, and progress is being
made in some of the managerial courses with the help of part-time and
technical assistance faculty.
7. Issues
7.12       There are a number of issues relating to IDM's current and
future role as a regional management training institute:
(a) IDM's Regional Role: In the last few years, it is clear
that IDS's role as a regional (as opposed to Botswana-based) institution
has come under heavy pressure. Both the governments of Swaziland and
Lesotho would like their own institutes of public administration (SIMPA and
LIPA) develop into national management training institutions. Both
14/ January 1985.
15/ July 26-28, 1982.



- 38 -
countries have been concerned with possible competition or overlap in
training programs offered by IDH and their national irstitutions, and the
negative impact of such competition on the development of these
institutions. In Lesotho, IDM and LIPA have carried out a joint
investigation of the content of their mutual programs and concluded that
the overlap is not serious. They have reached an accord in a report
currently being studied within the Lesotho Civil Service (See para. 7.21)
to carry out a program of collaboration, and relationships between the two
institutions are fairly sound. In the case of Swaziland, however, there is
a lack of constructive relationships between IDM and SICPA despite the fact
that the two institutions are located in adjoining premises. At their
present levels, however, LIPA and SIMPA would need time to develop the
s_affing and program capability to appeal to aenior managers in government
and the parastatals and to reorient their program to cater for the private
sector. At present, IDM appears to have superior staff and programs
compared to those of LIPA and SIMPA, and to be more responsive to private
sector training requirements.
(b) Regional Participation in IDM Courses: Despite the
potential market in Swaziland and Lesotho, there has been a pattern of
decline in Swaziland and Lesotho participation in IDM training
activities. This can be analyzed in a number of different ways:
(i) Course Participants: Annex 6 gives details of BLS
participation in IDM courses since 1978. The findings are summarized in
the following graph.



- 39 -
80x
-- -   I07SWANA
LESOTRO T
-   SWAZILAND
701                                                                       /
OTHERS
.                              _
6OX ~    ~       ~       
40 K
301
201
1027
1978      1979        1980       1981     1982       1983        1984
PROPOITIONLL  P&RTICTPLTIGN IN !DX-2!lGRAMS



- 40 -
The graph shows that Botswana has increased its relative participation
since 1979, from 45 percent of the total to 74 percent in 1984; Lesotho's
relative participation has declined steadily from 28 percent of the total
in 1981 to 8 percent in 1984; Swaziland relative participation has been
uneven between 1980 (when it reached its highest level-29 percent) and
1984 when it dro ped to its lowest level-14 percent).
(ii) Course locations: Annex 7 shows the number of
courses held at the three country centers. The findings are
sumarized in the graph on the following page.
The graph shows that the majority of courses have always been
held in Botswana, where there are wre staff and teaching facilities.
However, there has been a gradual proportional increase since 1980 in the
use of the Botswana center (from 52 percent to 73 percent), and a dramatic
drop in the proportional use of the Lesotho center (from 27 percent in
1981, to 6 percent in 1984). Proportional use of the Swaziland center has
fluctuated over time, but remained at about 24 percent. Therefore, In
effect, training courses have uved from Lesotho to Botswana.
(iii) BLS Participation at Specific Country Centers: Annex 8
gives details of BLS participation at each of the country centers:
- Botswana Center: The proportion of Botswana participants at
the Botswana Center has increased from 64 percent (1979) to 84 perceat
(1984), while Lesotho participants have declined from 24 percent (1978) to
6 percent (1984). Swazi participants fluctuate between 9 percent and 15
percent. Botswana participation has increased by 230 percent since 1978,
Lesotho participation decreased by 43 percent. Swaziland participation has
Increased over time but is currently a modest 10 percent.
- Lesotho Center: Lesotbo participants have always represented
the majority, although they have declined in absolute terms from 214 (1979)
to 68 (1983). Botswana participants have averaged about 23 percent, and
Swaziland participation has generally been less than 10 percent (except in
1982).



NUHEER OF ID PROGRAMS il'N AT THE ThIREE COUNTRY CENTERS
lox
602                 SWAZIlAND CENTER
LESOTHO CENTER
50Z       Li  S~OTSWANA CENTER
30Z
201
5ioz
1975        197          1977         1978         1979         1980        1981         1982         1983         19_ 



- 42 -
Swaziland Center: Swaziland participants have tradltlonally
made up the bulk, although since 1982, the proportlon of Botswana
participants has increased sharply, representing the majority In 1982 and
1984. Lesotho participants have always represented a small minority,
averaging about 12 percent.
(iv) One Country Participant Courses: Since Its inception, IDM
has always run some programs which draw all or most of its participants
from the country in which the center is based. However, as Annex 9 shows,
the trend has increased quite sharply in term; of Botswana-based programs
which draw all of their participants from Botswana: from 5 programs in 1978
(17 percent of all Botswana courses); to 20 programs in 1983 (55 percent);
and 17 progr.ams in 1984 (38 percent).
(v) Balanced Participation Programs: Another way of looking at
the same issue is to study the number of courses in which participation is
relatively balanced among the three countries. There is no absolute
criterion to define balanced participation, but Annex 10 shows the number
and percentage of courses run each year in which no country has more than
two-thirds of the participants. The table shows a fluctuating trend with a
low of 20 percent of such courses in 1984. There is a relatively higher
number of 'balanced participation" programs run in Swaziland especially
given the fact that only about 24 percent of IDM programs have been run in
Swaziland since 1982.
7.13      Overall Summary of Reglonal Participation: The above analysis
indicates that:  (i) overall, Botswana participation has increased sharply
while Lesotho participat'on has dropped sharply; (iI) the Botswana center
has become the focus for most training with the Lesotho center dropping
sharply in use; (iii) the Botswana center has become dominated by Botswana
participants with a sharp drop in Lesotho participation; (iv) the Lesotho
center is now used only modestly, and even Lesotho participants have
declined in absolute numbersl6/; (v) the Swaziland center is used mainly
by Swazi and Botswana particT5pants; (vi) the number of
Botswana-participant-only Botswana-based programs has increased
significantly in recent times. To reverse the trend, IDM needs to take
specific steps to re-establish its regional identity.
7.14      Distribution of IDM Participants over Public and Private Sector:
As a regional (3LS) Institution, IDM aims to cater to the needs of the
public and private sectors in these countries. A recent study of IDMts
1984 participation ratesl7/ shows that in reality IDM's programs are
16/ An important reason for this is financial, in that IDN courses have to
be paid for in addition to the subvention and Lesotho has difficulty
meeting this extra cost.
17/ Comparing IDM, BIAC, LIPA, and SIMPA: Institute of Development
Management, July 1985.



- 43 -
currently drawing far more support from the Civil Service than from other
sectors of the economy. As Annex 11 shows, in 1984 for instance, 58.7
percent of all participants came from the Civil Service, while 20.6 percent
came from the parastatals, 13.1 percent from the private sector, and 7.6
percent from other organizations (not-for-profit, non-government
organizations, and associations). To some extent these figures are
misleading because a large proportion of the 1984 participants attended
special local government programs for the Botswana Government. When
figures are analyzed by country, Civil Service participants represent the
highest proportion of participants for each country, although much more so
for Botswana than for Swaziland. The highest relative number of parastatal
parti.. pants are drawn from Swaziland and the least from Lesotho.
Participants from the private sector are most prominent among Swazi
perticipants, and those from 'other organizations' most prominently among
Lesotho participants. Overall, the impression is that IDH has still to tap
private sector market, especially In Botswana where their participants are
largely from the public sector. To widen its appeal in all three
countries, IDM needs to conduct market research to formulate specific
country strategy for widening Its appeal across the different sectors.
7.15      IDM's Strategic Direction:  Over time, IDM has built up a
prospectus of widely varied training programs. IDM has significantly
expanded its number of participants, and despite the withdrawal of CIDA
funding, IDM is now almost self-financing. However, self-financing is not
yet assured since some of its courses are subject to cancellation. For
example, the certificate in management course has sometimes been postponed
due to the low qualification of applicants. Other courses in public
relations and administration topics have also been cancelled. Despite a
souad curriculum core, IDM has yet to reach its potential as school of
management. Its programs do not appeal widely to senior managers from the
private sector and parastatals, or even for that matter from the Civil
Service. IDM was originally founded to provide training to middle and
senior managers, but because none of the other national institutions were
providing basic training in s ecific skills areas, IDM found itself taking
responsibility for such courses, not because of a result of a decision to
change its strategy, but as an outcome of prevailing circumstances at the
time. Although IDM regards consulting and research as key functions, such
roles have not yet become a regular part of IDM's-activities, especially
among the full-time lecturing;consulting staff. In terms of the impact of
its training, IDM is fairly systematic in carrying out post-course
evaluations through questionnaires completed by participants, followed by a
report prepared by the course director. However, few efforts have been
made to determine the longer-term benefits and utility of the programs (the
evaluation studies carried out in the Health and Education Administration
Programs are excep.tions). To help establish its future directions, it is



- 44 -
important that IDM find out how effectively it is satisfying its existing
market.
7.16      There are at present some unmet needs.  For example in Lesotho,
Botswana and Swaziland there is a need for a comprehensive and effective
training and consultancy program in entrepreneuriaL and small business
enterprise skills to help support the development of locally owned
enterprises18/.   Other needs include developing the planning capacities
in the public sector, especially in Swaziland and Lesotho;
professionalizing the personnel cadre in all three countries; institutional
development assistance to upgrade the caliber of NIPAS; and providing
consultancy support to senior government management (and government
consulting resource groups) in major programs of management reform. In
summaxy, in establishing its future direction, IDM needs to focus on: (I)
developing a strategy for playing a significant role, not just as a
training institution but as an institutional development agency comitted
to raise the calibre of management in the Ci-Al Service, and parastatals in
the BLS countries; (ii) defining the essential (as oppoced to important)
management needs that, if met, would make a major contribution; (iii)
addressing the needs of senior managers across all sectors In these
countries; (iv) reinforcing its regional role, by meeting specific Lesotho
and Swaziland national needs, in areas where IDM has a comparative
advantage.
7.17      IDM's Current Staffing:  IDM has successfully localized its
full-tine faculty staff, and many of them have recognized academic
qualifications, and background in their subjects. However, many of the
faculty members have limited experience as management trainers and in
management training techniques, limited practical experience of managerial
and organizational dilemmas, and limited background in management
consulting and research. IDM depends on part-time and visiting lecturers
for broader organizational perspectives and concepts, and approaches to
on-the-spot diagnosis, facilitation and problem-solving. 1DM's capacity to
broaden its appeal, especially to senior managers, depends upon building
the credibility of its lecturing and consulting staff.
7.18      IDM's Resource Distribution:  Most of the faculty are based in
Botswana and lecturers from all three countries travel to countries where
programs are being muntedl9/.  There are clearly some positive advantages
18/ IDM is already aware of such needs,-they were involved in the Regional
Conference for Small Business Development Organizations in July 1982
and have had follow-up contact with development corporations, but the
program of the scale required has yet to emerge.
19/ With the policy in 1985 of increasing the number of Lesotho and
Swaziland courses, it is estimated that Botswana lecturers will spend
typically 40 to 50 percent of their time outside of Botswana (although some
travel far less, focusing on special training for the Botswana
government). Lesotho-based lecturers will spend about 30 percent of their
time trevelling, and Swazi-based lecturers about 40 percent of their time
travelling.



- 45 -
in this approach. Lecturers develop broader perspectives; programs with a
cross section of participants from all three countries stimulate creative
thinking; the approach also provides participants with a greater variety of
lecturers (local consultants are also hired to teach IDM programs); and
there is economy in bringing resources together which otherwise would be
limited to one-country needs. However, there are some important
disadvantages in the IDM resource distribution. Lecturers who travel
considerably have inadequate time to increase their understanding of local
problems, to evaluate their training, or to reinforce iearning by follow-up
support. Constant travel also cuts lecturers off from a stable research
base where ideas can be tested and refined in the company of colleagues,
and in close touch with important trends. However, the greatest
disadvantage of the resource distribution is that (at a symbolic and a
practical level), it creates the impression that IDM is a Botsw3na-based
institution with outposts in Lesotho and Swaziland, rather than a genuinely
regional institution. Many managers in Lesotho and Swaziland feel that the
IDM staff are not available for long enough to carry out diagnosis of
needs, course design, consulting, and evaluation necessary to offer
programs with specific applicability to their national needs. As a result,
although IDM does meet some specifically Botswana-based needs2O/, their
ability to focus on Swaziland-specific or Lesotho-specific ne-e7s is
limited. This is an important concern given that each country contributes
equally to the running of IDN.
7.19      IDM's Financial Structure:  IDM's objective to achieve self
financing is commendable. However, so far IDMts main source of revenue is
derived from a core well subscribed programs. This places the institution
in a re3ponsive rather than proactive position, following markets as they
emerge, with the attendant problem of frequently shifting priorities. IDM
also experiences a dilemma in attempting to upgrade programs through
enforcing higher or more consistent eligibility standards, where this
action is likely to result in revenue loss. It is true that some programs
have been can.elled because of lack of qualified candidates. On other
occasions however, courses have been run with participants at a variety of
different (including unsuitable) academic and status levels2l/. IDM's
20/ There are four public administration programs run specifically for the
Botswana Civil Service (see Annex 5) and some consulting activities
with a apecial focus on Botswana.
21/ One recent example was the Project Planning and Appraisal Course, June
17-21, run with the assistance of EDI, where some participants had more
than 10 years experience in government and others less than one; some
had undertaken graduate degrees on economics, others had never taken an
economic course. This, added to the very heterogeneous organizations
represented among participants, made the program very difficult to
teach and limited its effectiveness.



- 46 -
fee structure is a further financial constraint. The Governing Board has
shown reluctance to upgrade the fees (which are currently modest by
comparison with private management consulting firms) because the fees are
closely tied to the amount the Civil Service traditionally pays for course
attendance. The Board has also resisted suggestions to introduce
differential fee structures-souch as a higher fees for tailor-made training
and consulti-g activities for cle=ts (such as the private sector and
certain profitable parastatals) who can afford and are willing to pay extra
for special IDM assistance. These financial considerations limit IDM'E'
capacity to develop a broader scrategy.
7.20      IDM Relationship with Other National Public Administration
Institutions (NIPAs): Many government officials believe that IDM competes
with the NIPAS. The recent agreement reached between IDK and LIPA in
Lesotho22/ (which is under consideration by the Lesotho Government)
emphasizes that in term  of course contents and the origins of
participants, there is no substantial competition between the two because
the degree of overlap in programming is limited to Civil Service
participants. In addition, IDM and LIPA programs are offered at different
times, and differ in terum of length, focus, and treatment of detail. The
report suggested that (among other things) LIPA/IDH collaborate on local
programs and in monitoring course design standards. It also recommended
that LIPA/IDM jointly use of expanded facilities proposed for IDM Lesotho.
7.21      In 1983, efforts were made to rationalize IDM's role among the
training insritutions in Botswana, by establishing a comittee consisting
of the Deputy vice-Chancellor of the University of Botswana, the Principal
of BIAC, the Principal of the Botswana Polytechnic, and the Director of
IDM. This Committee produced clarified terms of reference for each
institution, and mandated IBM to focus on middle and senior management
training across the private and public sectors, while BIAC focuses on
supervisory management training across the private and public sectors23/.
7.22      In Swaziland, accommodation between SIMPA and IDM has yet to
occur and it is to be hoped that an effort similar to that in Lesotho will
take place at an early time. It may in fact be beneficial for the
Swaziland Governmc..nt to commission an independent study by an outside and
independent facilitator. As recommended in the Swaziland country report,
SIMPA's role should focus mainly on Civil Service training. In terms of
the recommended future direction for IDM (see 7.26 below), this would help
22/ Comparative Study: LIPA and IDM, 1983-84, commissioned by Ad Hoc
Committee on the Coordination and Streamlining of Management Training
23/ Letter from Directorate of Personnel, May 24, 1983, entitled
.Management Training-Description of Roles", to Principal, BIAC; Deputy
Vice-Chancellor, University of Botswana; Principal, Botswana
Polytechnic, Permanent Secretary, Ministry of Education; Director,
Botswana Employers Federation; Establishment Secretary, ULGS.



- 47 -
to rationalize the role of the two institutions. An IDM study24/ of the
roles of ILK and SIMPA, has concluded that IDK covers topics iingreater
depth, and IDM does not focus as heavily on the public sector. The study
acknowledged however, that SIJIPA is beginning to widen its appeal to
participants outside the Civil Service, by adding new courses to their
prospectus. The report recommends that both institutions work out an
agreement so that each institute can concentrate on the programs in which
it has comparative advantages.
7.23      Agreement with the NIPAS shows a sensitivity to IDM's regional
role and to the three Governments determination to develop the NIPAS.
However, if IDM's future role is determined largely on the basis of such
sensitivity and accommodation, the institute m&y never develop a proactive
strategy based on the special advantages it brings to the BLS region.
Although IDM is constrained in many ways, its relative independence from
regulations and its informal internal structure make it the BLS management
institution mDst likely to innovate, experiment, take on new challenges,
and provide fresh answers to amnagerial rroblems that have previously
eluded solutions.  IDN's regional structure also helps to provide enriched
perpectives. To assume this important role, IDM needs to expand its
horizons without undue timidity or delimitation, while ensuring that its
relationships with the national institutions remain collaborative and
supportive.
7.24      IDM1's Physical Accommodation:  The limited classroom space in
Lesotho and Swaziland presents a significant problem to expanding IDM's
activities outside of Botswana. The lack of conference facilities in all
three countries restricts IDM's role (or makes IDM dependent on borrowed or
expensively-rented facilities). And the overall standard of the
accommodations, teaching environment, and dining and recreational
facilities severely hampers IDM's ability to praject itself as an
institution appealing to businessmen and senior smanagers. IDM currently
has two prcrosals for improvement of their physical infrastructure. In
Lesotbo there is a proposal which dates back to October 1983. The first
phase of the proposal would add six additional hostels with accommodation
for 48 a refectory plus din:ing lounge, a garage for two IDN vehicles, and a
guard house (total estimated in 1983 at M 351,000). The second phase would
include the construction of a lecture hall and five workshop rooms--which
could double up as classrooms (estimated in 1983 at M 317,000). The
justificatIon for this proposal includes a 40 highest proportion of
reduction in the cost of running courses; the conversion of reduced costs
into reduced fees and scholarships; an increase in the number of
Lesotho-based programs to bring these into balance with Botswana and
Swaziland-based courses; increased visibility for IDM through conferences
24/ Comparing IDM, BIAC, LIPA, and SIMPA; Institute of Development
Management, July 1985.



- 48-
and workshops; and facilities to cater to SADCC training programs. It is
believed that these plans have now been approved by the Board of IDM and
have been submitted to EEC for funding consideration.
7.25      In Botswana, there is a preliminary proposal for the improvement
of IDM facilities based on the current constraints: classroom capacity
exceeds hostel capacity resulting in loss of revenue; there are limited
facilitiei for private study by participants (the library has only four
places); facilities are over-spartan for senior management participants;
and classrooms are too confined to allow a variety of teaching techniques
and audio visual tools places. Large numbers of programs are concentrated
during university vacations so as to use their facilities, leading to
unnecessary strains on faculty and administration; and reliance on the
university may be short-lived due to Increasing university need. So both
IDM and the university feel it in the long-term interest to find another
site for IDM. Short-term options include improving current facilities
(which does not allow for any substantial expansion), or the renting of
additional facilities. Top prierities in the proposal are the expansion of
hostel accommodation to match classroom capacity, and the upgrading of
hostel facilities to meet levels needed to attract senior managers. Based
on these, the proposal is divided into seven project phases, which would
progressively add facilities over a period of time including additional
classrooms, accommodation, dining facilities, and library facilities (see
annex 12). The preliminary proposals do not include any cost estimates.
The university should consider taking over the existing IDS facilities
eventually and IDM could then rebuild its facilities on an available vacant
government site.
8. Recommendations
7.26      Obtaining Agreement on IDM's Role: The key to the future
development of T'4f iS creating an atmosphere of understanding between IDM
and its three clienit governments on IDM's regional and national role, and
its relationship to national training institutions. It is recommended that
in future, IDM should focus on: (i) continuing to provide high quality
training to middle level managers and especially to senior managers across
all sectors in the three countries; (ii) becoming actively involved in
research and consulting activities aimed at managerial and organizational
improvement in areas key to the development and prosperity of each country;
(iii) acting as institution development consultants to local management
training institutions; and (iv) acting as regional coordinators and
facilitators to management training activities across the ELS countries,
and for the BLS countries within the SADCC framework.



- 49 -
7.27      It is also recou_ nded that the Governing Board (expanded to
include some additional private sector representatives) and the Management
of IDM produce a strategy and development plan for IDM which would ensure
that it could fulfill the mandate described above. A conference should
take place involving senior Government representatives of the three
countries, the Governing Board and Manage-ment of IDM, and selected
representatives of other BLS training institittions and representatives of
the parastatals and private sector, to agree on IDM's future mandate and
development plan if requested, the Bank (probably EDI) could act as
facilitators of this conference. The remainder of the recommendations give
details of actions IDM will need to carry out withia the proposed strategy
and development plan.
7.28      Defining it, Market and Focus:  IDM should become far more
selective in its future activities . The focus sbould be: (i)
concentrating on key managerial issues and problems currently inadequately
addressed, but targeted directly at the quality of management and
organizational effectiveness (this applies to both the privateland public
sectors, and to training and consulting activities; especially Important is
expandin- IDM's involvement in the design of special programs tailored to
specific managerial needs (such as programs designed for some mainistries
in Botswana). In addition, IDM should work closely wi:.h user groups from
different sectors to help define priorities, review courses, identify
managerial needs, facilitate tailor-made training, and providing support
for IDH's expanded activities; (ii) developing greater credibility with
senior management so that it can influence (both through training and
consulting) those In a position to make key decisions and carry out
reforms; (iii) developing closer contact with client groups through
advisory bodies; (iv) advertizing its range of training and consulting
services through brochures distributed both to clients, and to donor
agencies Interested in supporting management improvements; (v) developing
within its regional plan, country-speclfic projects and services 80 that
the needs of all three countries are high on IDM's priority list. While
any needs are similar among the three countries and can be tackled on a
regional basis, it is Important that IDM allocate far greater resources to
projects in Lesotbo and Swaziland matched by initiative and involvement
from the Governments; (vi) going beyond accomodations and agreements with
national institutes of public administration, and creating specific
programs of institutional support to help their development.
7.29 Some Areas of Priority: IOM should take the lead in developing
projects to improve skills development in areas of national and regional
priority, such as those described in paragraph 7.16. One vital area is the
development of small business management and entrepreneurial skills. While
there are some other agencies, such as development corporations and extra



- 50 -
mural studies departments of universities, which offer programs in such
skills, nevertheless it is clear that an additional effort and new
approaches are necessary to support this important aspect of economic
development in each of the BLS countries. It is recomm_nded that IDK study
the approach developed by the Entrepreneurial Development Institute in
Gujarat, India. This approach has already been enthusiastically endorsed
by a number of other African Governments and holds promise for the BLS
countries. Other areas of priority include the following: (i) improved
planning skills, especially in the Civil Service and parastatals; (ii)
improved applications of computers and office technology to the design of
work and the more productive use of human resources (this will require a
combination of training and direct consulting assistance); (iii) improved
skills in management consulting and personnel management (see para. 4.01
(h)); (iv) the use of productivity techniques, such as quality circles; (v)
applied research into techniques and Lndels of management appropriate to
the BLS countrires; (vi) executive seminars tc define priority needs.
7.30      Divestiture:  To play these roles, InM would need a divestiture
plan--to transfer to other training institutions over a period of time
responsibility for running basic programs and orientation courses that
currently absorb much of IDM's energy. Divestiture would enable IDM to
expand its market, develop credibility with more senior and influential
clients, and devote time to research, consultancy, and training within a
given country and within a specific project. Divestiture should be
carefully aligned to the development of IDN's own staff, and the capacities
of the individual training institutes to take over responsibility. IDM
should be active as trainer-of-trainers, standard-setters, and provider of
technical assistance. This will require careful combined planning between
IDM and the NIPAs over the programs identified for transfer and the timing
and conditions necessary for successful transfer.
7.31      Key Areas for Improvement of IDX's Capacities:  To fulfill the
recommended role and mandate, 1DM needs to develop its own capacities in a
number of areas: (i) trainers/instructors: To provide the caliber of
training needed to influence the actions and improve the skills of senior
managers (especially those from the private sector and top levels in
Government), IDM needs to upgrade its skills in syllabus design, teaching
methods, and materials preparation; (ii) consultancy: For ILK to succeed in
working directly with senior managers on organizational problems, many of
its staff, relatively inexperienced in management consulting, require
organizational exposure and skills development; (iii) research: IDM needs
to expand its knowledge of managerial priorities in the BLS region, by an
ongoing research program. IDM has some sound research skills, but these
need to be spread more widely among its faculty and a formal program
established to carry out research, and evaluate the impact of IDH's



- 51 -
activities; (iv) negotiation: To fulfill the recommended mandate, 1DK needs
to be bold and assertive in its negotiations over the coming yea2s.  An a
regional Institution it In essential that IDM strengthen ito capacity to
respond to a wide range of clients and sponsors in a way that does not
compromise its central purposes.
7.32      Staff and Institutional Development Program: It is recommended
that a program be established to strengthen IDM's resources and
Institutional iage2R/ Areas of key priority should include wore practical
experience of managerial problems and processes; increased knowledge of
sector management issues; broadening the wethods and techniques of
training; and developing consultancy skills. The development program
should consist of a number of elements. While some, very selective use may
be made of overseas training, this should not be the central strategy as it
is time consuming, in many instances irrelevant, and in addition, the
institute runs the risk of losing its newly trained staff to other
agencies. Instead, IDM should seek technical assistance for three highly
skilled and experienced organizational management consultants with
developing country experience, for at least two years. These consultants
should participate in needs analysis, research, and negotiating activities;
run practical skills development training courses for IDM staff; provide
job training and support for local staff (through shared training and
consulting activities); develop the mure senior and experienced full-time
faculty to take over this training and consultancy responsibility; and help
in the production of senior management course syllabi and materials. In
addition, these consultants should spend considerable periods of time at
each of the country centers helping to develop center staff.  Less
experienced faculty members should be given practical organizational and
management exposure through assignment to private organizations,
parastatals, and government departments. IDM should collaborate closely
with other consultancy groups, (private consulting firms, internal
consultants and trainers in private and parastatal organizations, and
management services groups In government), to increase its Inowledge of
managerial problems and techniques. Active collaboration should be sought
with the training and consulting staff of local organizations which have
made impressive progress, such as Barclay's Bank, De Loittes, DeBeers,
Frasers, Lesotho Bank, and the telecommunication corporations in the three
BLS Countries. IDM's roster of part-time guest lecturers should be
expanded, by including additional expe'-ienced managers from the private and
public sectors. Consideration should also be given to organizing
management symposiums on important (but practical, not academic) mnagement
issues of the day. If requested, EDI as IDM's partner institution might
act as overall sponsors and advisors to this development program. In
addition to running courses at IDM, EDI could become active in directly
25/ IDM's management is currently working on such a plan as the basis
for a collaborative program of assistance from EDI.



- 52 -
upgrading trainer skills. Short seconduents of XDM staff to EDI should be
considered, as well as selective attendance of SDI courses in management
and sector-related topics of interest to IDM.
7.33      Additional Resources:  To carry out its expanded mandate, IDM
would require additional staff resources. The resource expansion program
should be phased to ensure that the right caliber of staff are recruited,
and that they are carefully inducted and trained. In the first phase, four
additional lecturers/consultants should be recruited, two for Swaziland and
two for Lesotho26/, so as to improve the balance of resources among the
three countries. Although it Is desirable that IDM faculty continue to
travel among the three countries to maintain regional perspectives, travel
should be driven mwre by a planned program of projects and research, and
less by the need to run training courses. Trainers should spend longer
periods in a country (not necessarily one country), so as to build up
in-depth knowledge of country needs, provide continuing, follow-up support
and take on iwre substantial projects. The selection of new trainers
should focus on filling in gaps in IDK's skills and experience, especially
in terms of the specific needs of Lesotho and Swaziland. Priority should
be given to candidates with managerial experience in both the public and
private sector, rather than university graduates with little experience. A
second phase of resource expansion should result from detailed needs
analysis, market research, and evaluation of IDM's successes.
7.34      Improved Relationship with In-Service Training:  As indicated
above (para. 7.19), 1M has experienced difficulties in ensuring that the
appropriate level of participants are selected to attend their courses. On
occasions, nominations are also cancelled at the last minute because of
problems in planning time to release participants. Blsewhere in this
report, and in the individual Country Volumes, recommendations have been
made on the need to improve the planning and wanagement of in-service
training, especially in the Civil Service. It is recommended that IDM take
an active role in advising training officers about IMproved methods. In
fact the Personnel Management Program provides a perfect opportunity for
influencing the improvement of training needs analysis, planning, and
management. However, the issues go beyond the appropriate and efficient
selection of course participants. On its side, IDM needs to ensure that the
content of its program  are carefully tailored to the needs of
participants, and is practical and problem-focused. Over time, IDM has in
fact made progress in designing special courses for the specific needs of
its clients. However, consulting activities will further ilprove the
relevance of such programs. As 1DH focuses Its attention on managerial
level participants, its programs would need to be designed to take
systematic account of management development needs at different levels. It
can directly influence ilprovements in planning management development by
26/ The Board bas recently approved the principle of additional staff.



- 53 -
working closely with officers responsible for management development in its
client organizations.
7.35      Elsewhere in this report (4.01 (g)), it has been recomended that
the BLS countries consider the establishment of an Association of Personnel
Officers. IK should play key role in helping to establish such an
association, and in Influencing the growth of personnel professionalism.
IDM's personnel management courses are currently the most advanced in the
BLS countries, and could form the nucleus of a future Institute of
Personnel ManaLgement (IPM) qualification.  An early contact should be made
with the IPM (UK) to determine the possibilities of future affiliation, and
the required examination standards. In the interim, ID! should include in
its training of personnel officers, practical projects Including Improved
methods of selecting courses, providing incentives for performnce
improvement through training, and redesigning training policies and
procedures to increase the benefits derived from training. These projects
should be accompanied by consulting follow-up assistance.
7.36      Expansion of IDM facilities: In Lesotho, as Indicated above,
plans are already underway for expanded facilities, with funds from EEC. In
Botswana, the draft proposal should form the foundation for the
reconstruction of facilities for ID on a new site large enough to
accommodate a separate facility to be shared with the proposed Center for
Accountancy Studies (Botswana). There are strong advantages to a
reconstruction plan in Botswana, because it would provide ID with the
quality of classroom, conference, and accommodation facilities appropriate
to a senior clientele. It is recommended that a single parcel of land be
found large enough to accommodate both 10K Botswana, and the proposed
Center for Accountancy Studies in independent facilities with space for
each institution to expand over time (This proposal does not imply a formal
merger of IDM and CAS (Botswana) although the two institutions my have to
collaborate in areas of common interest). Finally, a review should take
place of the IDH Swaziland facilities in conjunction with the needs of
SIMPA, and a collaborative expansion and upgrading program determined,
based on the results of this review. It is possible that a relocation of
SIMPA in Swaziland would be an option worth considering, especially as
SIMPA needs to expand its facilities.
7.37       Financial Considerations: While financial self-sufficiency
should continue to be a desirable long-term objective, this should not be
seen as the main focus during this period of IDN's development. As long as
IDK relies on income from basic and orientation programs, it would have
little incentive to divest itself of such courses, so as to use its
resources for new (perhaps not immediately profitable) activities. Neither
would it be easy for IDM to enforce eligibility standards to ensure that



- 54 -
the participants with the right level of qualification and experience are
selected to attend courses. There are no single answers to IDM's financial
arrangements, but rather a combination of measures that would require
skilled and imaginative financial management. Firstly, it is imperative
that IDM be given the right to institute a fee structure for its traLning
and consulting services based on what the market is willing to pay27/.
This would encourage IDN to enter new markets, and act as an incentive for
IDM to provide high quality service.  The Director of IDM should be given
the authority by the Governing Board, to carry out direct negotiations with
the different sectors of IDM's client market, and to establish, review, and
charge fees based on such negotiations. The Civil Service should also be
encouraged to pay more for improved programs for senior managers, and
special tailor-made programs for ministries. If necessary, IDH should
continue to charge a lower fee to Civil Service participants, but the
Governments should consider converting a part of the government subventions
to a subsidy for Civil Service participants. However, for this to work,
rationalization should take place in programs run by IDM and NIPAs so as to
ensure that IDM does not face unfair competition from NIPAs charging lower
fees. IDM should actively seek sponsorships and funding from a range of
supporters who have shown an interest in its activities-from government
departments, parastatals, private companies, as well as mambers of the
international donor community28/. To accomplish this, 1DM should channel
its market research and needs analysis into a comprehensive program of
proposed activities, for circulation among potential sponsors. Funding
should also be a key part of all of rDM'g negotiations29/. Finally, IDM
should also seek support from agencies and foundations in industrialized
countries for practical activities that will make a valuable contribution
to areas of research into management issues in developing countries. To
help IDM improve its funding program, it is recommended that IDM be given
a secondment for one year of an individual who is experienced in developing
sponsors for an educational institution, and who bas a useful network of
contacts among those donors agencies and research foundations who may be
attracted to IDE's work. More flexible financial arrangements,
differential fee structures, and additional sources of funding, are
probably the most important of all factors in IDM's future development.
27/ IDM's current fee structure is very modest by comparison to other
similar management institutions. For example, Mananga Agricultural
Management College charge four times as much as IDM; and the East and
Southern African Management Institute (ESAMI), three times as auch as
IDH.
28/ Its major sponsors could have board representation.
29/ For example, it could earn consulting fees for its institutional
development support to local NIPAS.



- 55 -
9. Role of External Assistance
7.38      If approached by BLS Governments, it ls recomended that
favorable consideration be given by donors to support the Institutional
development of IDM. The assisLance should consist of the following
components:
(a) Three technical assistance positions for two years to help
upgrade IDM's teaching and consulting skills;
(b) one technical assistance position for one year to help IDM
develop its sources of funding support;
(c)  improvement and expansion of IDM physical facilities
(d) increased institutional support from donors such as the World
Bank through EDI, including assistance in securing a compact
between IDM and the BLS governments, and in the development of
IDM's future strategy market research, and needs analysis.
7.39      It is recognized that some donors including the Bank may have
difficulty supporting a regional organization. However, this suggested
assistance could also be funded out of projects in each of the countries
involved.
VIII.  CURRENT RFCIOEL        ATiU XIrVES
Introduction
8.01      Because of their limited resources, their historical affiliations
and commonality of needs, it has been natural for the BLS countries to
collaborate on many ventures including those aimed at upgrading the quality
of management. In addition, the BELS countries are members of the nine
country South African Development Coordination Conference (SADCC)30/,
which has established its regional training Council (RTC) in SwazlMand.
The University of Botswana, Lesotho and Swaziland was probably the most
important regional venture in the area of training and education, until
Lesotho established a separate national university in 1975, and the
remaining University of Botswana and Swaziland separated into two national
universities In 1982.  Currently, the most important regional cooperation
is the IDM, which Is discussed fully in Chapter VII. A recent conference
in Maseru explored measures to encourage the regionalization of the
accountancy profession in Southern Africa; and the SADCC, through RTC,
30/ Members of SADCC consist of Angola, Botswana, Lesotho, Malawi,
Mozambique, Swaziland, Tanzania, Zambia and Zimbabwe.



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commissioned a report on Improving management in Southern Africa. This
chapter outlines in more detail, these examples of regional cooperation.
1. SADCC Study on Improving Management in Southern Africa
8.02      The Regional Training Council (RTC) of SADCC commissioned in 1984
the study, funded by USAID and carried out by the National Association of
Schools of Public Affairs and Administration (NASpAA)31/. The aim of the
study was to assess public and private sector management training needs in
the SALIC region, assess the capacity of existing institutions to respond
to these needs, and recommend a program to improve/expand institutional
capacities. The study concluded that adding new management training
courses was not an effective strategy. Instead, it recommended the type of
training which merges theoretical with practical problems, and the use of
applied research and consulting to reinforce training. The study
prioritized training needs in the area of motivating employees, personnel
management, interpersonal relations, knowledge of procedures, bureaucratic
politics, and technical skills. Attention to accountancy skills was also
regarded as vital. The report identified the need to improve the use of
expatriates to train counterparts; upgrade the skills and professionalism
of the personnel cadre; expand and strengthen internal management
consulting capabilities; and improve the management of training. The study
claims that there is substantial similarity of needs at all management
levels within organizations, suggesting that in-house multi-level
improvement programs using organization development methods may be
effective in improving organizational performance. The study also claims
that needs are sufficiently similar across the private and public sector
(including parastatals) to justify Joint training efforts involving
participants from all of these sectors.
8.03      The study found that existing training institutions were far from
adequate to meet the needs of the SADCC region because the institutions
suffer from poor caliber teaching staff; excessive rotation of these staff;
low salaries; excessive teaching loads which provide few opportunities or
incentives for consulting and research; overdependence on expatriates, paid
substantially more than locals, and often without understudying
counterparts; inadequate library facilities; few locally produced training
materials; and over-reliance on didactic teaching methods. The study
concluded that these training institutions need to expand their operations,
31/ The team consisted of seven US consultants (one part-time) and five
SADCC consultants (two part-time). The US consultants were drawn from
Harvard University, University of Pittsburgh, University of Nebraska,
USAID, Organization of American 3tates, and NASPAA.



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upgrade their teaching staff, adopt new or alternative teaching methods,
and develop training materials appropriate to local conditions. Among Its
recommendations, the NASPAA study proposed:
(a) The Establishment of a Management Development Resource
Center (MADREC) under the leadership of the SADCC Regional Training Council
In Swaziland, to assslt the performance of national institutes of
administratlon through training of traiuers and consultant support; to help
devise approaches to iotivation training linked to the specific
administrative and cultural conditions; to recommend creative approaches to
helping managers deal with bureaucratic politics; to develop and expand
training methodologies in professional accountancy; to study the best ways
of training public sector managers In rules and procedures; to help improve
methods of orientation and In-service training; develop skills program for
permanent secretaries regionally and by sector; and to help private sector
and parastatal organizatlons improve their technical training services.
The projected budget for MADREC would be US$2 million in the first year,
US$3 million in the second, and US$4 million in the third year. This
proposal is still under consideration.
(b) The Establishment of a School for Business and Parastatal
;-nament, based on the further development of a carefully selected
exLsting regional institution, or through the creation of a new regional
institution. No decision has been made on this proposal and it !.s not
quite clear what its relationship will be to existing university program.
(c) Regional Training Program for Permanent Secretaries, to be
run by technical or functional sectors, developed through a selected
institution in the region with SADCC funding and assistance. The proposed
program would involve a comn core management course, combined with
technical or functional-specific modules in a three day program, for senior
officials drawn from all SADCC countries. This proposal has yet to be
finalized.
(d) Training for Professional Accountants, by expanding the
national training effort in Lesotho to serve the needs in Botswana and
Swaziland.
(e) University Training in Public Administration and Management,
by developing within the SADCC region over the next 5-10 years, a
post-graduate program at an existing or new center of public
administration, to replace post-graduate overseas training.
8.05      Among the recommendations, the proposed Management Development
Resource Center can make an important contribution to developing local
institutions and exploring new approaches to training complex managerial
topics such as bandling bureaucratic politics. However, the proposed role



- 58 -
of MADRUC is too broad, and there is a danger that in a short period Its
resources could become overstretched or find insufficient time to deal with
issues in depth. For that reason, It Is strongly recommended that if SADCC
agree to the establishment of MADREC, its terms-of-reference should be
focused on a smaller number of top priority tasks. As far as possible,
MADREC should work through local training institutions rather than engaging
in independent actions. In this way, MADREC staff are wre likely to focus
on national management priorities while at the same time helping to build
up local institutional capacity. To ensure that this occurs, the national
institutions should be asked by their Governments to prepare agendas for
action which will then constitute MADREC's prioritized work program.
Siailarly, on a regional level, MADREC should work through regional
institutions, such as IDM in the BLS countries, on agendas developed by
these regional institutions. The proposals for the establishment of a
school for business and parastatal management, and for a center of public
administration, also give cause for concern if such proposals were to lead
to the creation of new institutions. There has already been an
unproductive proliferation of institutions, and the major priority should
be to consolidate and develop those which exist rather than diffuse scarce
resources even further. It is also recommended, that Instead of creating
single centers (even at existing institutions), that MADREC attempt to
develop skills across a wider representative spectrum of institutions.
Otherwise, there is some danger that thesc initiatives could take place at
the expense of local institutions. Finally, there is a need as has been
emphasized elsewhere in this report, to strike a balance between national
and regional initiatives. The SADCC countries share basic important needs
but have many differences and the small BLS countries especially require
special attention that could become lost if regional approaches were to
dominate the MADREC strategy32/.
2. Regionalization of the Accountancy Profession
8.06       At the first International Congress of the Lesotho Institute of
Chartered Accountants33/, the Director of the CAS presented proposals for
the regionalization of the accountancy profession within SADCC. The
proposals emphasized the current scarcity of financial Danagement skills in
the region, leading to problems in the availability of reliable financial
information for planning, control and decision making. The needs for
training exist in the government, private sector, financial Institutions,
parastatals, in public auditing functions, and in tertiary educationai
institutions. A regional approach was recommended because of the SADCC
countries' common economic interests (such as the need to strengthen their
own economic relations, and relations with the EEC and Commonwealth
Members). The proposal reported that the seven English speaking SADCC
32/ At the time of the report, the NASPAA report was still under
consideration.
33/ Held in Maseru, June 5-7, 1985.



- 59 -
representatives have agreed In principle (subject to the ratification of
their own Institutes or Associations) to create an independent Regional
Association of Accountants for Southern Africa 'RAASA), drawn from national
associations and institutes, whlch will recognize the exlstence of national
institutes, coordinate the dewvelopment and harmonization of the profession
in the region, and promote the observance of Internationally accepted
standards and guidelines. RAASA would be responsible for counseling new
and existing institutes; establishing codes of professional conduct;
developing uniform accounting and auditing standards; harmonizing
professional training; assisting in the development of a uniform
examination structure; liaising with international organizations34/;
representing the region at international conferences; and securing donor
funding through the SADCC Manpower Secretariat.   In terms of training, the
proposal emphasized the value of combining theoretical instruction with
on-the-job experience, which limits the desirability of overseas training.
Regionally, efforts can be made to design training manuals and programs,
organize research, pool human and material resources, issue journals,
technical pronouncements and research bulletins, and set externally
validated examinations. The Irish Government has agreed to fund four
consultants (two Irish, two SADCC nationals) to assess the scope and nature
of the region's demand for accounting skills; identify options for regional
training cooperation; and recommend appropriate, cost effective regional
training strategies. A follow-up meeting in Harare in August 1985 of
representatives of the SADCC accountancy associations and institutes,
endorsed the proposals to establlsh the RAASA.
IX.  RICSiD TIOS FOR RDGIONAL COK3AlO
Introduction
9.01      The section that follows outlines a series of recommendations for
cooperation among BLS governments, iastitutions and special groups. These
recommendations take into account the need to balance between regional
initiatives and the need to develop national instltutions and
competencies. At one level, the smallness of each BLS country and
limitation of resources argues strongly for the economic advantages of
regional approaches to training, and other management and institutional
development tasks. It is often pointed out that there are some strong
similarities of need across the three countries, which argues for resources
from the three countries to work together to produce creative solutions
based on the best experiences in each country. Individual countries have
34/ Such as the International Federation of Accountants, the International
Accounting Standards Committee, and. the African Accounting Council.



- 60 -
also made progress in certain areas which they can share with their
neighbors to avoid the task of having to start from scratch. The dilemas
that each country faces In its political and economic status in southern
Africa is also a strong case for solidarity and shared solutions.
The recommendations proposed below have been based on these
comon interests.  However, they also need to take account of the fact that
each country has its own national identity and unique problems, and should
not submerge itself in entirely regional solutions. The key to the
development of improved public sector management and administration Is the
strengthening of national institutions including IDM and local resources.
Regionalization which operates at the expense of national development, or
which draws Important resources away from meeting national needs, will be
counterproductive. Rather, what Is required is a regional approach
dedicated to helping develop national institutions and competencies, and
respecting what is distinct about each country. Economy of scale, while an
attractive benefit, should not be the major driving impetus to regional
initiatives.
Regional Cooperation
9.02      (a)  Training Needs Assessment and Management of In-Service
Training: Training needs assessment and management of In-service training
are considered critical issues in all three countries. As Botswana,
has been able to produce and test an improved approach to training needs
analyses and planning, it is recommended that the staff responsible for the
management of in-service training, in all three countries, meet for a
workshop in Botswana facilitated by IDM. Purpose of the workshop would be
to compare approaches to training needs assessment, problems encountered
and solutions attempted, the link between needs assessment and the
offerings of local training institutions, approaches to overseas training,
and methods of traiing evaluation35/.
(b) Regional Seminar on Labor Productivity: The BLS countries
have a greater sensitivity to the lportance of good management and need
for productivity i.proveuents in the Civil Service, than ever before. Both
Lesotho and Swaziland recently conducted senior government management
seminars dealing with the topics of improved managerent of the Civil
Service and the Governount of Botswana conducted a National Seminar on
Labor Productivity, January 1985, witn all important stakeholders--Civil
Service, parastatals, private organizations, trade unions, employee -
federation, etc.-involved. Based on the model provided by the seminar, it
35/ IDM is running a workshop in Botswana with observers from Swaziland
and Lesotho, relating to this typic. The works shop could constitute
a first step to accomplishing this objective.



- 61 -
Is recommended that a BLS workshop be held devoted to the theme of
improving of national productlvity. Facilitated by UKM, with the support
of productivity specialists, the workshop should involve key government
officials and would explore how change processes can be initiated to
improve productivity across the private and public sectors in the three
countries. This would be especially useful if timed to occur once each of
the countries has had an opportunity to explore their own productivity
issues, so that the country participants can share their experience and
views.
(c)  Development of Accountancy Training:  The need for trained
accountants is a recurring theme in the three BLS countries, both for the
Civil Service and public enterprises. This need should be met through
strengthening national training institutions, so that they can provide the
steady supply of skilled accountants and the pretechnicians, technicians
and professional levels required by the public and private sectors. The
CAS in Lesotho has progressed the furthest of the accountancy training
institutions in the BLS countries, culminating in graduating the first
locally trained, fully qualified, local chartered accountants, as well as
individuals at several intermediate levels. As institutes for accountancy
are established, as well as more advanced accountancy training centers, in
Botswana and Swaziland, they should tap into the experience gained by CAS
(Lesotho) over the last decade. In particular, this includes the sharing
of curricula, teaching materials (with the exception of those involving
taxation which are subject to local differences), methodologies, and ideas
for the organization and management of the new institutions.
(d) Management Services Units: The Government of each of the
BLS countries has a strong Interest in the development and strengthening of
their internal management consulting and problem solving groups, who share
similar roles in their respective Civil Service structures. In addition to
the informal contact which has already occurred among consultancy units in
the three countries, opportunities should be sought for exchanges of ideas
among these groups and, where appropriate, seconduent of staff, among the
three units. The three entities could join forces for common training
programs, perhaps under IDM sponsorship, where the advantage of larger
participation will make it economically attractive to mount training
in organization development, and management techniques and approaches.
Periodic conferences could be beld among the groups to pass on lessons
learned, new analytical tools and methods, and ways and means of conducting
management improvement efforts in the various core and sectoral
ministries. An example of one possible discussion topic is the
productivity initiative recently mounted in Botswana.



- 62 -
(e)  Senior Management Workshops:  Efforts have also been
initiated in the three countries to bring senior civil servanto together,
to discuss maragement issues and common proble-s. These national level
endeavors are to be encouraged but need rapid and thorough follow-up in
order to yield effective results. To build on progress made in each
country, it is recommended that workshops be convened at the three country
level with selected participants. A BLS permanent/principal secretaries'
conference might serve as a starting point for initiating this process. A
delegation of 5-10 high-level managers (Principal Secretaries) from each
country might convene to compare experience in government management,
describe improvement projects under way, and learn new techniques from
qualified management trainers.  Either IDM or MAMC in Swaziland could be
enlisted to provide expert assistance and facilitation for such a
conference. Assuming favorable results, the process could then be extended
to cover management at the sectoral level, using progress in a specific
sector in each country as a basis for ideas and learning. This
recommendation bears some aimilarity to the Permanent Secretaries training
recommended in the NASPAA's proposals (see para. 8.02).
(f) Cooperation Among National Institutes of Public
Administration (NIPAs): The NIPAs in the three countries (LIPA, SIMPA,
BIAC) are at various stages of development and all need strengthening if
they are to meet the national management and administration training needs
of their respective countries. While their charters may differ in some
respect, they share a number of common objectives and should be encouraged
to share experiences and collaborate on several fronts. The directors and
senior staffs should meet periodically to compare methods, approaches,
client needs, course offerings, handling of fees, recruitment, salary and
career development issues, publicity arrangements, etc. Development of
teaching/training materials is a recommended area for close cooperation, to
make the most of limited resources within each country and to exploit areas
of expertise. IDM could participate in such meetings.
(g) Developing Computing Capacity: As computing and information
technologies increase in capability and decrease in unit price, their
spread throughout the BLS public service is likely to be dramatic in the
next few years. This can be done either in an orderly, cost effective way
or result in expensive, disruptive, or piece-meal incompatible efforts with
little value added. When not managed properly, automated systems actually
interrupt the flow of financial or operational information rather than
enhance it as has been the experience in some parts of the BLS region. At
a national level, a high level data processing executive and/or committee
to oversee the introduction and use of computing and office technologies
provides an important safeguard. Beyond this, managing the introduction
and use of technology is also an area that calls for cooperation among the



- 63 -
three countries to profit from each other's experiences and new ideas, and
to avoid costly and counterproductive pltfalls. Outside expert facilitation
in this area is likely to be paramount, particularly  in view of the rapid
changes currently taking place in the technology and its capabilities.
(h) University Collaboration: Despite their separation some
years ago, the three national unlversities maintain some contact, and this
is to be encouraged. Recommended themes for future collaboration among the
universities include the diversification of the B.Com program which plays
such a vital role in management education; the development of technical
degree programs currently not available in the region, perhaps with each
university focusing on a specific area in which they have comparative
advantage so as to rationalize regional resources; early work on the
eventual creation of a masters program in management using assistance from
an outside school of management willing to assist in the endeavor;
experiments in training with overseas universities; and the hosting of
management symposiums in each country on a rotation basis, attracting
leading external management specialists.
(i) Collaboration Among Professional Associations: As has been
emphasized earlier in this report, professional associations and
institutions play an important role in maintaining standards and improving
the quality of training for members of the profession. In addition to the
existing associations of accountants, it has been recommended that national
associations of management, and of personnel specialists36/ be formed in
each country with government recegnition and support but cutting across all
sectors of the economy. These national associations will benefit from
collaboration and possibly federation within the BLS region, and even in
the case of the accountancy associations which are due to join forces in a
SADCC regional association, it is recommended that a smaller federation of
BLS associations be formed within this wider umbrella because of the
special affinities and needs among the three countries. While each
national association should retain its own identity, regulations, and
governing boards, they could usefully collaborate on issues such as codes
and standards, external certification for examinations, relationships with
other international associations, and the hosting of conferences.
36/ There is already a small Institute of Personnel Management in
Swaziland, and an Association of Training and Development Officers in
Botswana.



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- 65 -
ANNEX 2
Governing Board of Institute of Developent Managemnt
Chair:    Director of Personnel  (Government of Botswana)*
Members   1.  Permanent Secretary,
Education            (Government of Botswana)
2.  Botavana Federation of Employers
3.  Permanent Secretary,
Cabinet Personnel (Government of Lesotho)
4.  Permanent Secretary,
Commerce & Industry (Government of Lesotho)
5.  Principal,
University of Lesotho
6.  Training Manager,
Lesotbo National Development Corporation
7.  Principal Secretary,
Labor & Public Service (Government of Swaziland)
S.  Principal Secretary,
Economic Planning, (Government of Swaziland)
9. Director, DEMS
University of Swaziland
10.  Consultant           (Swazlland)
11. Regional Director, (Boetwana)
IDH
12. Secretary of Chamber of Commerce (Swaziland)
* A rotating position.



- 66 -
ANNEX 3
Qualifications o. IDE Faculty
Full-time Lecturers
1. Certificate in Financial Management
2. Master of Science
3. Certificate in Financial Management
4. Diploma in Public Administration
5. Masters in Public Administration
6. B. Comm, Royal Institute of Accountants
7. Dip. Ed.
8. Certificate in Financial Management
9. Master In Business Administration
10. Bachelor of Arts (x)
11. HMster of Education, R.N.
12. Master of Education (x)
(x) on study leave
Visiting lecturer.
1. Bachelor of Arts, LID.
2. Ph.D.
3. Bachelor of Arts
4. Ph.D
Part-Time Lectures
1. ACCA
2. Master of Arts
3. Ph.D
4. Master of Arts
5. Diploma in Administration
6. Bacheler of Science
7. -



-67-
ANNEX 4
INSTITUTE OF DEVELOPMENT MANAGEMENT                      Page 1 of 2
DETAILED INCOME AND EXPENDITURE ACCOUNT, 1982-1985
~. _---_
INCOME
Student course fees            673,&1"      826,769                     '
Seminar and conf. income        12,6t1        7,682
Consulting income               19,O0'       10,950
Svbventions from host
governments                   121,81',     144,375                        e
Donor support funds 1/          36,'j/       18,536
Sponsored posts 2/             137,'1.i     111,000           SO          Si'
Other income                    21,                       S* 40e432gg
Total income                 1,022,;;t   1,159,744                     *
EXPENDITURE
Advertising                     10,Y!4       32,734
Audit and legal expenses         5,('Te1T     5,860         53          * eee
Bad debts recovered            (86,C'W)    (24,296)
Bank charges and interest        2,9I*        1,500 1
Course expenses                 30,W.I       42,537
Currency exchange gains         11,!fil      (3,728)3
Increase in provision for
bad debts                     (29,S'A)   (111,843)
Depreciation                    24,Z1.       41,012                     e 31.
Equipment rental                   lf.4       3 619           a:          eec
General expenses                 3,1I'             '                       CIk
Governing board fees
and expenses                    4,Sk e.e
Insurance                        1,'M.                                   se
Motor vehicles expenses         19 ,ST.'s3
Participanits costs            185,Lj.
Printing, postage and
stationary                     30,O0         e a          *  .5      .6. se
Profit on disposal of
fixed assets                    9, W:
Repair and maintenance          11ii,5rM                     S          * 0
Sponsored posts                137,!fsL    3    5,4                        .. 
Staff costs                    330,1..!
Telephone and telex             16,! . .
Travel and accommodation        46, 'k,      *    '        C            S 050
Rtsearch costs                   3
Total expenditure              770, a                     .. .         .:   e
(Deficit) surplus for
the year                       251,                        s .



-68-                                 ANNEX 5
Page 2 of 2
1982      1983
P         p
1/ Donor support funds
CIDA                                                 61,220    13,992
USAID                                                16,650      --
EDF                                                  1),087      -
EEC                                                    -         4,544
Less USAID receipts for 1981 which were treated
as donor support but were in fact payment of
course fees debt which had been written off as
uncollectable, in the previous years                (51,760)     -
36,197    18,536
2/ Sponsored Posts (estiuated pul values)
CIDA                                                111,212    81,000
Government of Botswana                                3,333      -
Peace Corporation                                      -       20,000
Government of the Netherlands                        10,000      -
German Catholic Health                               13,000    10,000
137,545   111,000
_mn .           l.



ANNEX 5
- 69-                                     Page 1 of 5
Institute of DeveloLment Manaeen
Details of 1985 Programs
Area      Course Tltle      Length                       Objective
Acounting                                    fficers and Accountants.   Ori
Finance
counting II    3  weeks    Graduates of Accounting II, intermediate
skills based on MT materials
Certificate In    9 weeks    Graduates of Accounting II, preparation
Finance Nanage-               for AAT level I exams
rent Part I
_Certifiate in    9 veeks    Graduates of CFH Part I, preparation for
Finance Manage-               MT level II exams
ment Part II
T level II       4 weeks    Intensive AUT level II coaching
nation
Preparation
level III      5 weeks    Intensive coaching for the Financial
Optional                      Acounting, Cost & Management Accounting
Papers                        examinations
_  Internal        2 weeks    Foundation for accountants in internal
Auditing                      Auditing procedures, covering operation-
al areas (such as finance, purchasing
and transportation production and
maintenance marketing etc.)
Certificate in    4 weeks       course offering a grounding for public
Business                      and prlvate sector managers in numerative
Mathematics &                 skills.
Finance
Coamunic.o-   Coomunication      6 weeks    For supervisors, mid-level, and senior
tion       for Managers                   managers, across all sectors, responsible
for intra/inter - organizational communi-
cations - Offering knowledge and skills
development in various methods of spoken
and written communication
ustomer           1 week     Basic prograz for those who deal with
Relations                    customers and clients



- 70                                     ANNEX 5
Page 2 of 5
Area      Course Title      Length                       Objective
Public             3 weeks    For porsonnel responsible for publlc
Relations                     lnformtlon, or public relations, offer-
ing practical training In planning and
evaluatlng public relatlons activitLes
(O level pre-requlsite).
Education   Education                      Programs developed around the specific
Admulnstra- AdminLstration                 needa of education adminlstrators, with
tion        Program                        variations In the three BLS countries.
Electronic  Introduction         I week    Orlentation program for mnagers in the
Data         to BDP                        benefit  and methods of  DP.
Processing
Software Serles Short lnstruction l courses in the use of a range of
software progrm
Health       Certificate In  34 weeks      Preparation of future or current health
Services    Health Adminis- (Lncluding   servlce administrators (government or
Management  tracion.         8 weeks of   prlvate sector) on the technlques of
practical    hospital administration, health care
assignments) planning, and a variety of related
nagerial skills.
Pre-requisite: 0 level and experience.
Certiflcate In  34 weeks      Preparation of present or future matrons,
Nursing Admini  (including   assistant matrons, and senior nursing
tration.        8 weeks of   adnistrators (publlc or private sector)
practical    in the management and delivery health
assignments) care
Health Services   6 weeks    PreparatLon for Medical Records Clerks in
Managment                     medical record procedures.
Nursing Unit       3 weeks    For present or potential nursing sisters,
Management                    intrcduction to supervisary skills needed
in a hospital ward or nurs'ng unit.
Management  Certificate in    18 weeks         overview program Including a range
Management                    of managerial skills and techniques, for
midle and senior managers ln private and
public sectors.
|   Atvancet       6 weeks      new progrm  for holders of the Certifi-
Certificate                   cate iho have obtained a diatinction. The
in Management                 program concentrates on helping managers
understand the structure of organizations
plus the role of a mnager within this
structure. Secondly, the program review
the development of management thought and
practice, and their applicability to the
Southern Africa region. Finally, the
program examines a wide range of
anagerial techniques and principles.



-71                                       AN-    5
Page 3 of 5
Area      Course Title      Length                       Objective
CertLficate in  16 veeks       For personnel mnagers/officere ln
Peronnel         (sandwich    prlvate and public  ectors, an lntensive
Magement       program)      skills program ln a wide range of person-
nel systems and technLques. Courses
Lnclude a practlcal on-the-job project.
Pro-requisite: 0 level and currently
employed as personnel specialLst.
Management   Certlficate In        Granted to those who complete four short related
Offlce Nngt.         courses
Organizatlon    10 weeks       For those responsible for improvLng
& Methods                      systems and proceduras, especlally
nagement ServLces OffLcers.
roject Manage- 4 weeks         ffered jointly with EDI, to assist
nt                           persons responsible for implementing
development prcjects, offered to public
ffLcers of BLS, & Zimbabwe, ZambLa and
'awi.  Pre-requisite:  2 years post-
*ecundary education ln agriculture,
economfcs, or management selence, plus 2
ears project planning/mngt.experienience
Introdu:tion to 4 weeks        Introductory program for current middle
nagement                         senior managers who have not
reviously been given trainLng ln medern
nagerLal practLces.
Better work      3 veeks        or supervlsors In public and private
ethod                         sectors, techniques ln distributing,
tracking, and improving work.
_ ecords         3 weeks        or registry supervisors in prLvate
nagement                     plus public sectors, and lntroduction
to methods of managing records.
rganizational  2 weeks         or middle and senior managers (private 6
Behavior                       public sectors) an experimental program
aimed at developing skills in handling
nagerial situatlons and interpersonal
relations.



-72-                                     ANNEX
Page 4 of 5
Area      Course Title     Length                       Objective
Manpower          2 weeks    For manpower planning officers (private
Planning                      and public sectors) covering the basic
principles and techniques of manpower
lanning
Management Labor Relations   2 veeks    Sil  development course in mnaging
labor relations, with a background of
labor law, Intended for labor officers,
trade union offLcials, and private/
public sector personnel officers
Marketing         4 veeks    Basic principles and techniques for
Management                      rketing oanagers from industrial/
coomercial sectors
Retail            2 weeks    For managers of retail organization, a
Management                    practlcal outcome of the principles
and problems of retail management
Purchasing         1 week    Introductory program for purchasing
Management                     gents in industrial/coamercial
sector, including ustoms regulations as
they apply in BLS
Management         1 week    Introductory course in methods of
Information                   utilizing information to plan, direct,
Systems                       control, and evaluate organizational
prformance
Performance        1 week    For supervisors and personnel officers,
Appraisal                     techniques of performance
evaluation to Improve performance
Interview          1 week          supervisors and personnel officers,
Techniques                    techniques of recruitment selection, and
appraisal interviewing
Preparation of     1 week    For supervisors and personnel officers,
job Description               technique of job analysis and
production of job descriptions and
specifications
Job Evaluation     1 veek      or supervisors and personnel officers,
a range of techniques for evaluating
jobs, and the application of wage and
salary structures



ANNEX 5S
73                                    Page 5 of 5
Area      Course Title      Length                      Objective
Public      Certifae           i we                  for mddle & snior    
Adminlstra-   cal Govern-                  Lu the  ethods of local government admi-
tlon          nt Adainl-                  ostration vith specific focus on the
ratlon                         otaa  Unified Local Goverment Servic
Govern-     6 weeks    Itroductory course In roles and
ut Adminis-                 responslblilties of Botswana district and
ration                       local govera_ent off lcers
ertLficate in    12 weeks   Basic knowledge of the law and its
Sration                   interpretation for Botswana distric
rocedure aflcl
rcificte In    12 weeks   Intensive trainlng In criMnal proseca-
ublic                        tion procedures for Botswans police
rosecution.                        r
Special       riculture        4 weeks    Program for partlcLpants from BLS,
Programs     roject                        Zimbabwe, Zambia and Malavi, run jointly
nagement                    with ZDI, African Development Bank,
International Fund for Agriculture
i                               ~~~~~~~~~~Development
nergy Policy       1 week        in conjunction wLth EDI and aimed at
eminar                       high*r level policy makers ln the energy
sector from African natlons
rimary  l1alth    12 days        in conjunction with EDI for
re Seminar                  participants from SADCC
idc Personnel 3 months A program run jointly vith BIAC, for
naga emQC                   partlelpants nominated by the Directorate
of Pe_0 onnel, in the Botswana Govertment
ralning of       7 weeks             program in teaching skills for
snageuent                    nagap emet and accountancy trainers, from
ducators                     managesat, public administration and
accountancy nlstitutes in the SADCC
on



ANNEX 6
- 74 -
Institute of Development Manatement
Participation from BLS and other Countries mince 1978
Year    Botswana      Lesotho       Swaziland        Other
participants participants participants participants TOTAL
1978    337 (452)    247 (33Z)    143   (19         20  (32)      747
1979    345 (452)    175 (23Z)    199   (260)   42  (6Z)          761
1980  7404 (461)    168 (191)    261   (292)    51  (62)         884
1981    497 (54Z)    258 (282)    159   (171)    12  (1X)        926
-~~~~
1982    449 (611)    133 (182)    125 -(171)   -26  (41)          733
1983 812 (642)    166 (13)    261   (211)    30  (22)   1,271
1984    822 (741)      88 (8Z)      159   (141)    49  (41)
TOTAL 3,666 (571)  1,237 (19Z)  1,307   (201)   230  (41)   6,440



- 75 -                                   ANNEX 7
Institute of Development ManaRement
Number of Courses, Participant Weeks, and Participants, 1975-84
Year                        Number of courses                   Total Participants
Total Botswana-based Lesotho-based Swaziland-based           weeks
1975    13         7   (54%)    3       (23Z)      3      (23Z)       1,014
1976     15       12   (80%)    0                  3      (20%)         843
1987  34    ~17   (50%)   10       (9)        7      (21%)       1,886
1 1978   1 47   L  28   (60%)   10      (21%)      9      (l9%)       1,862
1979     37       24   (65%)    5       (13%)      8                  3,116
1980     60       31   (52Z)   15       (25%)    14       (23Z)       3,744o
1981     48       27   (56Z)   13       (27%)      8      (17%)       3,251
1982     45       27   (60%)    9       (20)              (20%)       3,486
1983        67  1   40   (60%)    6     (9%)              (31%)       5,804
1984     64       47   (73Z)    4       (6%)      13      (20X)       5,379
Projected       .                1                _
1985        65      36   (55%)    13      (20%)    16       (25x)



ANNEX 8
- 76-
institute of Development Management
Pattern of BLS participation in IDM programs 1978-1984
Year   Course                         No. & Percentage              TOTAL
Location    Courses           of Participants from:        partlcipants
Z of
No.   Total  Botsvana   Lesotho    Swaziland   No.   Total
1978  Botswana   28    (61%) 295 (661)  106 (24Z) 45  (10)   446 (61Z)
Lesotho    10    (22Z) 25 (141)   141 (81Z)   9  ;5%)    175 (24Z)
Swaziland   8    (17Z) 17 (161)    -  (OZ)  89  (841)   106 (15Z)
TOTAL      46           337 (46%)   247 (341)  143 (201)   727
1979  Botswana   24    (651) 293 (641)    95 (21Z)  69  (151)   457 (631)
Lesotho     5    (131) 26 (261)    54 (551)  19  (191)    99 (141)
Swaziland   8    (221) 26 (16%)    26 (16Z)  111 (68Z)   163 (231)
TOTAL      37           345 (481)   175 (241)  199 (281)   719
1980  Botswana   31    (521) 329 (81%)   53  (6Z)   105 (131)  831 (67Z)
Lesotho    15    (251) 45 (181)   68  (741)    7 (81)        92 (71)
Swaziland  14    (231) 30 (38Z)   47  (151)  149 (47Z)   318 (26%)
TOTAL      60           404 (65Z)   168 (141) 261 (211)  1248
1981  Botswana   27    (561) 397 (79Z)   62- (12Z)   47 (91)    506 (551)
Lesotho    13    (271) 64 (251)  176  (691)   16 (61)    256 (281)
Swaziland   8    (171) 36 (241)   20  (131)   96 (631)   152 (17Z)
TOTAL      48           497 (54%)  258  (28X)  159 (181)   914
1982  Botswana   27    (601) 328 (811)   28 (7%)    51 (121)   407   (76Z)
Lesotho     9    (201)   40 (23Z)   95 (56Z)   35 (211)   170   (7Z)
Swaziland   9    (201)   81 (621)   10 (8Z)    39 (301)   130   (171)
T IOTAL    45            449 (63Z)  133 (151)  125 (18Z)   707
1983  Botswana   40    (602) 673 (81Z)   53 (61)   105 (131)  831   (671)
Lesotho     6    (9Z)    17 (181)   68 (741)    7 (81)       92   (71)
Swaziland  21    (31Z) 122 (38Z)   47 (151)  149 (47Z)   318   (26Z)
TOTAL      67           812 (65Z)  168 (141) 261 (211)  1248
1984  Botswana   47    (74Z) 682 (841)  46 (6Z)       80 (10Z)  808   (761)
Lesotho     4    (6Z)    48 (621)  25 (32Z)       5 (6Z)     78   (7Z.
Swaziland  13    (201) 92  (50Z)  17 (91)       74 (411)   183   (17X)
TOTAL      64           822 (771) 88 (81)    159 (15Z)  1069



-77 -                                  ANEX 9
Institute of Development Management
One Country Participation Courses 1978-84
Year    Course      No. of Courses with participants from only:
Location     Botsvana        Lesotho         Swaziland
1978   Botswana         5              -                _
Lesotho          -              4 6
Swaziland        -              -                6
1979   Botswana         3              -                _
Lesotho          -              1
Swaziland       _               -                3
1980   Botswana         12             --
Lesotho          -              8
Swaziland        -              _                6
1981   Botswana         6              -
Lesotho          -              3                -
Swaziland       -               -                2
1982   Botswana         7              -                _
Lesotho          -              2
Swaziland       -               _
i 1983   Botswana       20             _
Lesotho          -              3                -
Swaziland        2              1                5
1984   Botswana         17             -
Lesotho          -              I
Swaziland        1              -1
-



- 78 -                                 ANNEX 10
Institute of Development Management
Number of Balamced Participation Courses 1978-84
(in vhich no country has more than 213 of the participant
Year  -scation |ASS~   __                    2   of
Year    Botsvana    Lesotho   Swaziland   Total   Total of courses
1978       11           3           1        15            33Z
1979       14           1           4        19            37Z
1980        8           4           3        15            252
1981        6           6           3        15            312
1982        8           3           6        17            37Z
1983        9           2          11        22            33%
1984        8           -           5        13            20l



ANNEX 11.
- 79 -
Institute of Development Management
Percentage of Participants In 1984 from different Employment Sectors
Countries   Civil Servire    Parastatal    Private    Other    TOTAL
Botswana       62.7             20.6          12.2       4.5     100
Lesotho        54.9             11.0           7.3      26.8      100
Swaziland      39.8             26.6          21.1      12.5     100



-80-                                     ANNEX 12
Proposals for Upgrading IDM's Botswana Facilities
Prolect 1 consists of converting each of the 23 double bedrooms
bedrooms with private bathrooms and suitable furnishings; and the addition
of another 23 single roomo so as to give IDK the same hostel capacity at
present, but at an upgraded, single-bedroom bathroom basis. Project 2
consists of constructing an additional 54 bedroom to provide for the
accommodation required to match IDK's classroom capacity. The current
dining room caters to only 48 people in two sittings. Project 3 consists
of upgrading and espanding the dining room, and living room 1/ to cater to
the increased number of residential participants, and to add a kitchen 2/
which IDM does not currently possess. ProJect 4 consists ofupgrading
somewhat primitive classroom conditions by providing improved acoustics and
sound proofing, facilities to Improve the use of audio-visual equipment,
modular furniture to allow for flexible classroom use, improved writing
boards, improved tir conditioning, and facilities for handicapped students
and movable furnishings. ProJect 5 consists of expanding current classroom
facilities to lessen reliLace on the unlversity facilities during peak
periods. This pould Lnvolve adding two new classrooms each for 25
participants, plus a conference room for 40/60 persons to cater for
increased conference activities. Project 6 consists of expanding
residential facilities by an additioMiU10 bedrooos to cater to the
increased classroom capacity and the prospect of a growth in residential
activities. ProJect 7 consists of an expansion of the library facilities.
The current library shelves are close to capacity, there is constricted
space for library administration, and there are facilities for only four
students. The proposal Includes at least 30 study places, and better
facilities for reference and periodicals,
21 The living room accommodates only 15 people.
3/ Food Is transported from the university and dispensed in unsuitable
conditions.



- 81 -
Selected Bibliography
The full listing of the bibliography is on the sector study
file. These are just some of the documents consulted in this report. The
Government documents and reports are not listed here.
D. Alt et all:  A Review of Personnel Management Policies, Procedures and
Practices. Mbabane, 1984.
K. 0 Appiah:    Formal Employment and Manpower in Lesotho, 1980 - 2000.
Naseru, undatea.
M. Benti]:       Strengthening the Department of Establishment and Training
and Capacity within the Government for Personnel
Administration and Manpower, Mbabane, Sept. 1984.
M. Bentil:      Report of the Task Force Review and Comments on Progress
Report on the Strengthening of the Department of
Establishment, Mbabane, undated.
L. Cooper:      The Twinning of Institutions:  Its use as a Technical
Assistance Delivery System, World Bank, Technical Paper
No. 23, Washington, D.C., undated.
E. Chiviya &    Draft Report on Swaziland, prepared for NASPA, Sept. 1984.
R. Klitgaard:
EDI:            A Review of the Program and Plan of the Eastern and
Southern African Management Institute, World Bank,
Washington, C.C. 1984.
EDI:             Strategies for Strengthening Mid Career Management Training
Institutions in Developing countries, World Bank,
Washington, D.C., 1984.
V.Gotlsleber    Strengthening the Industrial Training and Trade Testing
& G. Rotsh:     Systems of Botswana, Ministry of Home Affairs, Gaborone,
1Y864.
M. Kubr &        Successes and Failures in Meeting Management Challenge
J. Wallace:     Strategies and their Implementation, World Bank, Stat
Working Papers No. 585, Washington, D.C., 1983
F. Lenglet:     Management in Southern Africa:  The Organizational Climate,
IDM, Gaborone, 1985.
F. Lenglet:     Not Bigger but Better, IDM, Gaborone, 1984.
P. Olsen:       Management and Productivity:  A Review of Management
Gaborone, 1984.



- 82 -
Practices: Gaborone, 1983.
P. Olsen:       Manageament and Productivity in Botswana:  IDK Study,
Gaborone, 1983.
S. Ozgediz:     Managing the Public Services in Developlng Countries:
Issues and Prospects, World Bank, Staff Working Papers No.
583, Washington, D.C. 1983.
OED:            Operational Policy Review: Institutional Development In
AICa  A ReVIeW   orld Bank Project F!32erience, World
Bank, Washington, D.C.' Nov. 1984.
N. Raphaeli     Public Sector NMnagement in Botswana Lessons In Pragmatism,
et all:         World Bank, Staff Working Paper no. 709, Washington, D.C.,
1984.
T. Sato et all: Sma                              the University of
Consultants in institutional Development, Draft, World
Bank, Washington, D.C. 1985.
Samuel Paul:    Training for Public Administration and Management in
Developing Countries, World Bank, Staff Working Paper no.
584, Washington, D.C., 1983.
D. H. Tarr:     Report of the auditor General on the Public Accounts of
Lesotho, Maseru, March, 1978.
Report of the Permanent Secretaries, Workshop Held at the
National University of Lesotho, Maseru.
Managing Training:  A Guide for BWAST Training Coordinators
to Assist in Managing the Training Function, Gaborone,
October, 1984.
EW