In my first article in this series (DT, August 7, 2003), I had examined
alternative management approaches for NGOs and some of the specific features
that underlie the success of NGOs that have grown from small to medium
sized ones. Typically, the successful NGOs started work in one hamlet
a decade ago, are now working in scores of villages. In this article I
will identify seven key changes within such NGOs, which could enable them
to up-scale further to reach a district level size with full coverage
of all Union Councils. Such district level NGOs based on Community Organizations
of the poor could play a crucial role in enabling the existing local government
structure at each tier to link up with the poor in the process of resource
allocation, project identification and implementation. At the moment in
the absence of an institutional link with autonomous organizations of
the poor, local governments are not in a position to involve the poor
in the process of decision-making.
Seven key initiatives can be identified for enabling NGOs to up-scale
to the District level and make local government more efficacious:
- The single leader at the top (variously called Chairman, President
or Chief Executive Officer) would need to build a team of at least three
or four leaders who can work independently at the top level. This is
necessary in a situation where programme operations become so geographically
diversified within a district that overall programme management would
need to get decentralized to the Union Council and Tehsil levels.
- For a major up-scaling of small NGOs to successful district level
NGOs, it would be necessary to receive grant funding for institutional
strengthening and growth. The Pakistan Poverty Alleviation Fund that
has recently been established, could provide such funding after careful
evaluation of the concerned NGOs and assessment of their expansion plans.
- As the organizational structure of the NGO changes from a centralized
to a geographically decentralized one, within a whole district, the
methodology of work would also have to change to enable introduction
of procedures for monitoring and strategic planning. As full autonomy
is granted to Union Council and Tehsil level regional programme heads,
each of them would be expected to report and evaluate on programme performance
within an agreed format and in consultation with community organizations
and the regional programme team. This evaluation could be done on a
monthly basis and could feed into the process of developing regional
programme plans on a quarterly and annual basis. These tehsil level
regional programme plans prepared initially at Union Council level regional
programme offices, would include issues such as the number and locations
of new COs to be formed and the deepening of existing COs. It would
also include facilitating the preparation of participatory village development
programmes for infrastructure, social sector services, and off-farm
enterprises, as and when such services are identified by COs. The deepening
of existing COs in the regional programme plans would include devolution
of organizational responsibilities to Union Council and then village
activists for managing village level or village cluster level apex organizations
of the poor. Such devolution of responsibility would, on the one hand,
enable self-managed community organizations to develop, and on the other
hand, enable the NGO to keep its overheads low as it enlarges its coverage
within the district. The regional planning exercise could be conducted
at the Tehsil level office on a quarterly basis. However, this process
could also involve annual plenary planning sessions at District level
Head Office where village activists, key members of regional teams and
Head Office personnel in planning, monitoring and human resource development,
would interact with each other.
- One of the necessary conditions for successful NGOs that up-scaled
to medium-sized level, was the development of a nascent middle level
management in their team, although still tightly supervised by the top
leadership. As small NGOs up-scale to district level size and achieve
geographic diversification, such middle level management would have
to be brought to maturity, allowed greater autonomy and considerably
increased in number. Such middle level management would play a key role
in coordinating social mobilization, training of Union Council level
managers and teshil level managers and village level activists, and
accessing technical support and credit. The middle management Union
and Tehsil level cadre by virtue of its proximity to the field would
also be important in collecting data necessary for monitoring, evaluation
and planning.
- The challenge to NGO up-scaling is that unlike RSPs, they must keep
overheads costs to a minimum level. In order to achieve this, it is
necessary for the NGO to be able to withdraw from those villages where
COs have achieved adequate maturity and have developed the capacity
to form apex support organizations of their own. The critical factor
for enabling NGOs to devolve organizational responsibilities to apex
organizations of COs, is the development of a cadre of village activists
with training in the following fields: (a) community management skills,
(b) ability to interact with donor organizations and government line
departments, (c) expertise in a range of basic skills such as, livestock
management, agriculture, soils, irrigation, natural resource management
and micro-enterprise development. Such a cadre could constitute a core
management team in an independent apex support organization.
- As the NGO up-scales to a district level size it would generate a
variety of training needs for CO members at the village level, as well
as career development and professional training needs of NGO personnel.
Consequently, a human resource development programme within the NGO
may be necessary to identify the human resource and career development
needs specific to the internal dynamics of the NGO’s work. The
human resource development section within the NGO would need to be a
lean unit which should network with diverse specialized institutions
to access the required training services.
- As the NGO reaches a district scale, there would be a quantum leap
in the range and complexity of financial flows within the NGO programmes
and also between the NGO and macro level institutions (such as PPAF,
commercial banks, donor agencies and government departments). It would,
therefore, be essential for the NGO to have a high quality professional
finance and accounts division, with the ability to develop and operate
MIS, finance, accounting and statistical software packages. Members
of this division, while having the best available skills as chartered
accountants and finance managers would need to be sensitized to the
methodology of Participatory Development and their work integrated with
field operations. It would be necessary to develop accounting procedures
that while meeting the auditing requirements at the most rigorous level,
would also have the innovativeness and flexibility to cater to the unique
nature of development NGOs credit operations.
Local governments are now in place and functioning. However, currently,
they suffer from such a severe shortage of financial resources and of
professional expertise, that they are incapable of making a significant
impact on the provision of basic services or on poverty reduction. If
autonomous NGOs of the poor could replicate and reach district level size,
then an institutional link could be established with local government
in each district at various tiers. Such an institutional link would not
only broaden the base of resources and technical expertise for local governments
but would also enable them to involve the poor in the identification and
implementation of development projects.
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