A significant feature of Pakistan’s economic landscape during
the last two decades has been the emergence of development NGOs. Many
of them have used the participatory development approach to enable a sustainable
improvement of skills, productivity, incomes and infrastructure at the
local level. Recently, the government has initiated a process of decentralization
through the local government structure, ostensibly to enable a more participative
democracy.
These parallel phenomena of the emergence of development NGOs on the
one hand and decentralization reforms of the government on the other,
indicate a number of strategic issues for development policy. For example:
(i) Can development NGOs achieve sufficient coverage of the poor population
and cost effectiveness for a significant impact on the overall poverty
problem of the country? (ii) What are the institutional dynamics and management
systems involved in achieving rapid coverage and efficacy of NGOs? (iii)
In view of the emergence of local government structures, is it feasible
to facilitate up-scaling of community based NGOs only upto the district
level, rather than having cross district, national level, centralized
NGOs vying for power and resources with elected local government structures?
(iv) How can institutionalized linkages be established between autonomous
community based organizations of the poor and different tiers of local
government (village, union council, tehsil and district)? These questions
will be addressed in the ensuing series of articles based on my recent
and ongoing research.
EMPOWERMENT AND MANAGEMENT
The defining feature of a program for empowering the poor, is the passion,
which impels those who work in it and those for whom they work. It is
not just an emotion but a form of consciousness. It comes from transcending
the ego and relating with the community through love. Thus, passionate
consciousness is both a cohering force of the community and also the synergy
through which the NGO team can engage in a process of action and reflection.
This principle can be the basis of its management culture and work procedures.
It would be manifested in the quality of dialogues that occur between
NGO personnel and rural communities, on the one hand and between members
of the NGO team on the other. The dialogues are designed to identify and
actualize the creative potential of individuals.
This form of learning and creative growth if pursued by an NGO through
its dialogues may be called Faqiraana as, opposed to Messianic. The messianic
leader/teacher/manager is one who claims to embody the truth and if his
followers want to become something they can only be his shadows. By contrast,
the faqiraana leader/teacher/manager is one who abnegates his own exceptionality
and recognizes each individual as the unique origin of change. The participants
in the dialogues whether between the NGO and a community or within the
NGO itself, are essentially co-equals in a journey of actualizing each
other’s creative potential in the context of social change.
The organizational structure reflecting the Messianic approach is hierarchic
and restricts the space for independent thinking. Its work procedures
involve issuing instructions or blindly implementing them. By contrast
the organizational structure associated with the Faqiraana approach is
non-hierarchic, designed to provide space for thought and action by autonomous
individuals in collegial interaction. Its work procedures instead of being
a simple dichotomy between instructions and compliance, are designed for
mutually fertilizing dialogues, action and collective reflection.
UP-SCALING SMALL NGOS: THE KEYS TO SUCCESS
Having examined the management approaches of small NGOs, let us examine
the factors involved in up scaling. The aim of up scaling small NGOs would
be to reach the district level only, but with coverage of all union councils
within it. This is in view of the fact that: (i) the government is decentralizing
key governmental development functions to the district level. So if NGOs
fostering community organisations of the poor, could go up to a district
scale, they could institutionally link up with local governments. This
would enable organisations of the poor to participate in government funded
development projects and also in other areas of local governance. (ii)
The NGO (or RSPs) which are currently operating in a number of different
districts simultaneously, have very low intensity of coverage within any
one district. There may therefore be a case for having district level
NGOs that have full coverage of the poor population within it.
Of the large number of NGOs with small beginnings, a few have grown
to a significant size and achieved national prominence. These include
OPP/OCT, Sungi and Thardeep Rural Development Programme. Three questions
arise in the context of their growth: (a) What are the common factors
in their success? (b) At this stage of their growth, what are the constraints
they face to further up-scaling and/or rapid replication? (c) What are
the elements of an enabling environment at the national level which could
let a “hundred flowers bloom”, in the sense of nurturing the
rapid growth/replication of a variety of development NGOs, enable mutually
catalyzing interaction and yet maintain the unique character of each of
them?
Perhaps the single most important factor in their success is the quality
of leadership. Specifically, it is the ability to relate with humility
and love with the poor. It is to build a team which while being internally
coordinated, at the same time, enables each member to become a centre
of thought and action. The successful NGO leader creates the team synergy
to develop innovative responses to each new problem on the ground. Yet,
he/she ensures that each action by the team contributes to reinforcing
the process of the poor taking charge of their own development. The effective
leader focuses the team to experience the potential of the poor and to
grasp the specific dynamics of how they can organize, take responsibilities
and initiate change. Thus the challenge for the NGO leadership is to so
relate with the poor and the team, that every act, every word, every moment
of silence, contributes to fertilizing the other, rather than establishing
control: Liberating rather than inducing dependency.
The second factor in the success of those small NGOs which engage in
social mobilisation, is the identification, training and fostering of
village level activists who gradually begin to manage existing COs, thereby,
enabling NGO staff to give more time to develop new COs. This process
of devolution of management responsibility from NGO staff to village level
activists is a crucial factor in the enlargement of NGO coverage in a
situation where funds are limited and rapid expansion of staff financially
infeasible. The converse of this dynamic is that if too much money becomes
available too early, it undermines discipline, initiative and energy of
the NGO.
The third factor in the success of small NGOs which have reached significant
scale is the development of second level management and the ability of
top level leadership to devolve responsibility, acknowledge their achievements
and to learn from them just as much as it is necessary for the leadership
to learn from the poor. An inner wakefulness that comes from transcending
the ego is necessary to be always open to learning from the poor, and
from each member of one’s team. It is this openness to learning
from others that constitutes the basis of the organization’s dynamism,
its innovation and its sense of being a community.
The fourth factor in the success of small NGOs in reaching significant
scale is the development of credible accounting procedures, and a regular
monitoring and evaluation exercise on the basis of which donor funding
can be sought when it is required. In each case the successful NGO, apart
from devising efficacious modes of reflection and action with the village
communities, also develops formalized recording and reporting systems.
In this article we have examined the organizational and management issues
involved in up-scaling NGOs and empowering the poor. In next week’s
article we will examine the issues involved in the transition from small
sized NGOs to district level NGOs. |