ORGANISATION MONDIALE DE LA SANTÉ

WORLD HEALTH ORGANIZATION EB54/14

20 May 1974

EXECUTIVE BOARD

Fifty-fourth Session

Provisional agenda item 6.2

REPORT BY THE JOINT INSPECTION UNIT

Report by the Director-General

1. The Director-General is pleased to submit to the Executive Board as an annex to this document a report entitled "The Need for a revised concept on UNDP Regional Training Programmes in the Least Developed Countries : The East African Case" (JIU/REP/73/5). This report was received on 28 January 1974.

2. In accordance with the established procedures for handling the reports of the Joint Inspection Unit accepted by the Board in its resolution EB45.R35,2 the Director-General transmitted his preliminary comments to the Economic and Social Council through the designated channels on 22 April 1974. The transmittal letter, as well as the Director-General 1 s preliminary comments and observations are reproduced as an appendix^ to this document• The Director-General has no further comments to add thereon.

1 This annex is only attached to the copies of this document distributed to the members of the Executive Board.

Handbook of Resolutions and Decisions, Vol. I, 1948-1972, p. 497,

This appendix is only attached to the copies members of the Executive Board.

of this document distributed to the

JIU/REP/73/5

REPORT ON

THE NEED FOR A REVISED CONCEPT ON UNDP REGIONAL

TRAINING PROGRAMMES IN THE LEAST DEVELOPED GOUOTRIES:

THE EAST AFRICAN CASE

by

E. F e r r e r - V i e y r a and J . A . Sawe

J o i n t I n s p e c t i o n Uni t

GE.74-IO96 Geneva December 1973

- i

Table o f Contents

Pages

Pro logue - i i -

Chapter I - INTRODUCTION

The Scope o f t h e Report 1 - 2

Chapter I I - GENERAL BACKGROUND TO THE TRAINING NEEDS IN EAST AFRICA 3 - 8

Chapter I I I - APPRAISAL OF THE OPERATIONS OF THE UNDP-ASSISTED

TRAINING CENTRES IN EAST AFRICA 8 - 3 1

A. General Observat ions 8 - 1 3

B. The Operat ion o f t h e T r a i n i n g P r o j e c t s 1 3 - 3 1 1 . P r o j e c t RAF-71-199, The East A f r i c a n I n s t i t u t e f o r

M e t e o r o l o g i c a l T r a i n i n g and Research 13-17

2 . P r o j e c t RAF-71-201, The V o c a t i o n a l T r a i n i n g Centre f o r t h e East A f r i c a n Community 1 7 - 2 0

3 . P r o j e c t RAF-71-155, Telecommunicat ions and P o s t a l Tra in ing . 20-24.

U. P r o j e c t RAF-68-109, The Eas t A f r i c a n Rai lways and Harbours T r a i n i n g and Development P r o j e c t 24 -27

5 . P r o j e c t RAF-66-081 and RAF-70-lA9, The East A f r i c a n S c h o o l o f A v i a t i o n ( N a i r o b i ) and The East A f r i c a n F l y i n g S c h o o l ( S o r o t i ) 2 7 - 3 1

Chapter IV - A REVISED CONCEPT OF THE UNDP TRAINING PROGRAMMES IN THE LEAST DEVELOPED COUNTRIES 31-35

CONCLUSIONS 36

REG0MME2ÍDATI0NS 3 7 - 3 8

ANNEX 工

Prologue

"The f i r s t two y e a r s o f t h e Uni ted N a t i o n s Second Development Decade had no t

s e e n s i g n i f i c a n t improvements i n Afr i ca» In terms of t h e output o f goods and

s e r v i c e s , t h e performance o f t h e independent d e v e l o p i n g A f r i c a n c o u n t r i e s during t h a t

p e r i o d had sunk be low t h e average a c h i e v e d i n t h e p r e c e d i n g decade".

(S ta t ement by t h e E x e c u t i v e S e c r e t a r y , ECA t o ECOSOC, 6 J u l y 1973)

Chapter 工

INTRODUCTION

The Scope o f t h e Report

1 . The annual programme o f a c t i v i t i e s o f t h e J o i n t I n s p e c t i o n Uni t has from i t s

i n c e p t i o n i n c l u d e d a r e v i e w o f s e l e c t e d t e c h n i c a l c o - o p e r a t i o n a c t i v i t i e s o f t h e Uni ted

N a t i o n s and s p e c i a l i z e d a g e n c i e s a t t h e country as w e l l a s a t t h e r e g i o n a l l e v e l . Th i s

r e p o r t was p r e p a r e d i n accordance w i t h t h e U n i t 1 s programme f o r 1973 , which i n c l u d e d

f i e l d i n s p e c t i o n s i n a s e l e c t e d number o f c o u n t r i e s .

2 . Thi s r e p o r t i s a r e v i e w o f UNDP-ass i s ted r e g i o n a l t r a i n i n g i n s t i t u t i o n s i n Eas t

A f r i c a . The t r a i n i n g programmes i n t h e l e a s t d e v e l o p e d c o u n t r i e s c o n s t i t u t e , i n t h e

I n s p e c t o r s * v i e w , a b a s i c s t e p i n t h e whole p r o c e s s o f development i n t h o s e c o u n t r i e s

on which most o f t h e o t h e r development programmes f o r economic and s o c i a l p r o g r e s s are

b u i l t .

3 . The main purpose o f t h i s r e p o r t i s t h e r e f o r e t o e v a l u a t e t h e b a s i c c o n c e p t and t h e

p r a c t i c a l s t e p s t h a t were c o n s e q u e n t l y taken i n t h e UNDP-ass i s ted t r a i n i n g programmes

and t o s e e :

(a) i f t h e s e r e a l l y meet t h e r e g i o n a l or n a t i o n a l needs o f t h o s e c o u n t r i e s j

(b) i f t h e UNDP c o u l d i n ç r o v e t h e use o f t h e r e s o u r c e s i n t h e s e programmes,

U. In p u r s u i t of t h e above o b j e c t i v e , t h e I n s p e c t o r s made a f i e l d i n s p e c t i o n o f t h e

f o l l o w i n g s i x major r e g i o n a l t r a i n i n g i n s t i t u t i o n s :

RAF一66一081 (UNDP一IGAO) The East A f r i c a n S c h o o l o f A v i a t i o n - N a i r o b i

5 , In t h e c o u r s e o f t h e i r i n v e s t i g a t i o n s , t h e I n s p e c t o r s h e l d c o n v e r s a t i o n s w i t h UNDP

o f f i c i a l s i n charge o f t h e p r o j e c t s i n New York, w i t h t h e e x e c u t i n g a g e n c i e s 1 programme

o f f i c e r s a t t h e i r h e a d q u a r t e r s , and i n t h e f i e l d w i t h t h e r e s i d e n t r e p r e s e n t a t i v e s ,

the p r o j e c t managers, t h e i r l o c a l c o u n t e r p a r t s and t h e government o f f i c i a l s d i r e c t l y

concerned w i t h t h e p r o j e c t s . Contac t s were a l s o made wherever p o s s i b l e w i t h s t u d e n t s

RAF-70-U9 (UNDP-工CAO) The East A f r i c a n F l y i n g S c h o o l

RAF-68-109 (UNDP-UN) The Eas t A f r i c a n Ra i lways and

Harbours T r a i n i n g and Development

RAF-71-199 (UNDP-WMO) The East A f r i c a n I n s t i t u t e f o r

M e t e o r o l o g i c a l T r a i n i n g and Research

RAF一71-201 (ШШР-工LO) The V o c a t i o n a l T r a i n i n g Centre

RAF-71-155 (UNDP-ITU) Telecommunicat ions and P o s t a l

T r a i n i n g , Eas t A f r i c a N a i r o b i

N a i r o b i

N a i r o b i

Arusha

S o r o t i

and s t a f f o f t h e t r a i n i n g c e n t r e s . The I n s p e c t o r s w i s h t o e x p r e s s t h e i r a p p r e c i a t i o n

f o r t h e c o - o p e r a t i o n t h a t was accorded t o them dur ing t h e i r v i s i t s , some o f which were

made a t s h o r t n o t i c e .

6 . In a d d i t i o n t o t h e v i s i t s t o t h e p r o j e c t s mentioned above , t h e I n s p e c t o r s t o o k t h e

o p p o r t u n i t y w h i l e i n t h e f i e l d t o make s h o r t v i s i t s t o two n a t i o n a l t r a i n i n g p r o j e c t s

t h a t had a h i g h r a t i n g as s u c c e s s f u l p r o j e c t s . The p a r t i c u l a r a t t r a c t i o n o f one o f them

was t h e f a c t t h a t w h i l e i t was a n a t i o n a l p r o j e c t i t s o p e r a t i o n s were r e g i o n a l , an

i n t e r e s t i n g f e a t u r e i n r e g i o n a l c o - o p e r a t i o n �

7 . The c h o i c e o f t h e Eas t A f r i c a n p r o j e c t s was i n f l u e n c e d l a r g e l y by t h e f a c t t h a t

t h r e e major East A f r i c a n d e v e l o p i n g c o u n t r i e s are members o f t h e Eas t A f r i c a n Community,

which was e s t a b l i s h e d by t h e Governments o f Kenya, Uganda and t h e Uni ted Republ ic o f

Tanzania under t h e Treaty f o r Eas t A f r i c a n G o - o p e r a t i o n , s i g n e d a t Kampala on 6 June

1967 . The Eas t A f r i c a n Coramunity, wi fch i t s common market conponent , p r o v i d e s a s o l i d

b a s i s f o r r e g i o n a l c o - o p e r a t i o n i n E a s t A f t i c a .

8 . An a d d i t i o n a l a t t r a c t i o n o f t h i s e a s t e r n s u b - r e g i o n o f t h e A f r i c a n c o n t i n e n t i s t h e

p r e s e n c e o f t e n o f A f r i c a 1 s s i x t e e n c o u n t r i e s d e s i g n a t e d by t h e Uni ted N a t i o n s as t h e

l e a s t d e v e l o p e d among t h e d e v e l o p i n g c o u n t r i e s o f t h e world and e n t i t l e d t o s p e c i a l

measures i n t h e i r f a v o u r i n t h e Second Uni ted N a t i o n s Development Decade. Two o f t h e

t e n l e a s t d e v e l o p e d c o u n t r i e s are members o f t h e Eas t A f r i c a n Community, i . e . T a n z a n i a

and Uganda, and s i x o f t h e remain ing e i g h t ^ surround and border on t h e t h r e e p a r t n e r

S t a t e s o f t h e Community. S e v e r a l among t h e s e d e v e l o p i n g c o u n t r i e s are l a n d l o c k e d as

w e l l .

9 . In c a r r y i n g out t h e f o l l o w i n g r e v i e w , t h e I n s p e c t o r s have drawn c o n s i d e r a b l e

i n s p i r a t i o n from t h e many r e s o l u t i o n s o f t h e General Assembly and t h o s e o f i t s Economic

and S o c i a l C o u n c i l , a s w e l l a s t h o s e o f t h e o t h e r o r g a n i z a t i o n s o f t h e UN f a m i l y ,

r e g a r d i n g i n t e r n a t i o n a l commitment t o t h e d e v e l o p i n g c o u n t r i e s dur ing t h e Second Uni ted 2/ 3/

N a t i o n s Development Decade-7 9 t h e importance a t t a c h e d t o r e g i o n a l c o - o p e r a t i o n ^ and

t h e s p e c i f i c measures i n f a v o u r o f t h e l e a s t deve loped n a t i o n s .

l / Somal ia , E t h i o p i a , Sudan, Rwanda, Burundi and Malawi

2 / General Assembly r e s o l u t i o n s 2564 (XXIV) o f 13 December 1969 and 2б2б (XXV) o f 2U October 1970

2 / ECOSOC r e s o l u t i o n s 1Д32 (XLVII) and 1601 (LI)

U Document E/4990 p p . 1 2 - 2 3 , ECOSOC r e s o l u t i o n 1726 ( L I I I )

一 3 -

Chapter 工I

GENERAL BACKGROUND TO THE TRAINING NEEDS IN EAST AFRICA

(a) The Eas t A f r i c a n Coinmunity

1 0 . S i n c e a l l t h e r e g i o n a l t r a i n i n g c e n t r e s rev i ewed i n t h i s r e p o r t come d i r e c t l y

under t h e East A f r i c a n Community and are i n f a c t a d m i n i s t r a t i v e l y p a r t o f t h e

CommunityTs t r a i n i n g programmes, a word about t h e Community and i t s p a r t n e r S t a t e s

i s n e c e s s a r y i n order t o f u l l y a p p r e c i a t e t h e advantages and p i t f a l l s t h a t have had

d e c i s i v e e f f e c t s on t h e f u n c t i o n i n g o f t h e above p r o j e c t s .

1 1 . The East A f r i c a n Community i s a unique example o f r e g i o n a l economic c o - o p e r a t i o n ,

l e a d i n g t o an i n t e r g o v e r n m e n t a l o r g a n i s a t i o n t h a t came i n t o b e i n g on 1 December 1967

under t h e Treaty o f East A f r i c a n C o - o p e r a t i o n . 工七 i s unique i n t h e s e n s e t h a t t h e

l e a d e r s o f t h e Eas t A f r i c a n Governments had t h e v i s i o n t o s e e t h e i r a c c e l e r a t e d

p r o s p e r i t y i n u n i t y and s e l f - r e l i a n c e .

12 . lrtihile t h e East A f r i c a n Community w i l l be c e l e b r a t i n g i t s s i x t h b i r t h d a y i n

December 1973， t h e p a r t n e r S t a t e s t h e m s e l v e s w i l l be j u s t about t w i c e t h e age o f the

Gommunity� Kenya c e l e b r a t e s i t s t e n t h independence a n n i v e r s a r y i n December t o o .

Ugandans are c e l e b r a t i n g t h e i r e l e v e n t h a n n i v e r s a r y and Tanzania c e l e b r a t e d i t s own

t e n t h a n n i v e r s a r y o n l y two y e a r s ago .

1 3 . The p o l i t i c a l age of t h e t h r e e c o u n t r i e s i s but one o f many t h i n g s t h a t are

common t o them a l l , p a r t i c u l a r l y over t h e whole p e r i o d a f t e r the F i r s t World liar when

Tanzania came under t h e same c o l o n i a l r u l e . Common p h y s i c a l c o n d i t i o n s and n a t i o n a l

r e s o u r c e s and a d m i n i s t r a t i v e machinery and languages on t h e one hand and t h e low l e v e l

o f development i n human r e s o u r c e s and economic and s o c i a l c o n d i t i o n s on t h e o t h e r , form

t h e b a s i s f o r economic c o - o p e r a t i o n between t h e p a r t n e r S t a t e s �

1/,. Under t h e Treaty of Eas t A f r i c a n Go-opera t ion , t h e t h r e e East A f r i c a n Governments

o f Kenya, Tanzania and Uganda, which were determined t o s t r e n g t h e n t h e i r u n i t y ,

e s t a b l i s h e d t h e Eas t A f r i c a n Coinmunity and t h e common market as an i n t e g r a l p a r t o f t h e

Conmiimity, w i t h t h e main aim o f s t r e n g t h e n i n g and r e g u l a t i n g t h e i n d u s t r i a l , commercial

and o t h e r r e l a t i o n s o f t h e p a r t n e r S t a t e s , w i t h a v i e w t o a c h i e v i n g a c c e l e r a t e d ,

harmonious and b a l a n c e d development and s u s t a i n e d expans ion o f economic a c t i v i t i e s , t h e

b e n e f i t s o f which should be e q u i t a b l y shared .

(b) The Goimnon S e r v i c e s

15 . The Community, through i t s many i n s t i t u t i o n s , c a r r i e s out a number o f f u n c t i o n s

g i v e n t o i t by t h e Treaty o f East A f r i c a n G o - o p e r a t i o n , on b e h a l f o f t h e par tner S t a t e s ,

r e l a t e d t o t h e e s t a b l i s h m e n t , f u n c t i o n i n g and development o f t h e common market and

s e v e r a l s e r v i c e s s p e c i f i e d i n t h e T r e a t y .

16• The s e r v i c e s a d m i n i s t e r e d d i r e c t l y by t h e Community i n c l u d e :

- T h e S e c r e t a r i a t o f t h e Gonmiimity and t h e Common Market

- T h e Eas t A f r i c a n D i r e c t o r a t e o f C i v i l A v i a t i o n

一 The Eas t A f r i c a n M e t e o r o l o g i c a l Department

- T h e Eas t A f r i c a n Customs and E x c i s e Department

- T h e Eas t A f r i c a n Income Tax Department

- A b o u t a dozen Eas t A f r i c a n Research I n s t i t u t e s

- T h e East A f r i c a n L i t e r a t u r e Bureau

- T h e Eas t A f r i c a n Development Bank

1 7 . The s e r v i c e s a d m i n i s t e r e d by t h e Community's f o u r Corporat ions a r e :

(a ) t h e Eas t A f r i c a n Railway Corpora t ion , which p r o v i d e s s e r v i c e s and

f a c i l i t i e s throughout t h e t h r e e c o u n t r i e s r e l a t e d t o r a i l , road and i n l a n d

waterways t r a n s p o r t and i n l a n d waterways p o r t s ;

(b) t h e E a s t A f r i c a n Harbours Corporat ion , which a d m i n i s t e r s a l l t h e harbour

s e r v i c e s and f a c i l i t i e s ( o t h e r than i n l a n d waterways ) j

( c ) t h e Eas t A f r i c a n P o s t s and Telecommunicat ions Corporat ion , which

a d m i n i s t e r s t h e p o s t s , t e l e c o m m u n i c a t i o n s and o t h e r a s s o c i a t e d s e r v i c e s ;

(d) t h e Eas t A f r i c a n Airways Corpora t ion , which a d m i n i s t e r s s e r v i c e s and

f a c i l i t i e s r e l a t e d t o East A f r i c a n and i n t e r n a t i o n a l a i r t r a n s p o r t »

1 8 . The magnitude and importance o f t h e s e r v i c e s rendered t o Kenya, Tanzania and

Uganda through about t h r e e dozen i n s t i t u t i o n s of t h e Eas t A f r i c a n Community, can be

judged by t h e f a c t t h a t t h e s e s e r v i c e s a f f e c t i n t i m a t e l y t h e l i v e s o f some 3 5 , 0 0 0 , 0 0 0

p e o p l e i n an area c o v e r i n g some 1 , 7 5 9 , 0 0 0 square k i l o m e t r e s . About 8 per c e n t o f t h e

t o t a l p a r t n e r S t a t e s f g r o s s n a t i o n a l product i s handled through t h e Eas t A f r i c a n

Conmiunity. The Community employs about 8 0 , 0 0 0 p e o p l e i n i t s v a r i o u s a c t i v i t i e s i n t h e

p a r t n e r S t a t e s and beyond East A f r i c a .

1 9 . Al though many o f t h e major common s e r v i c e s a d m i n i s t e r e d today by t h e East

A f r i c a n Community had t h e i r o r i g i n s i n t h e p r e - i n d e p e n d e n c e d a y s , t h e y have i n f a c t

had t o f a c e g r e a t d i f f i c u l t i e s i n g e t t i n g them s t a f f e d by l o c a l p e r s o n n e l a t t h e middle

and upper e c h e l o n s � This i s due t o t h e f a c t t h a t dur ing t h e c o l o n i a l p e r i o d l o c a l

Eas t A f r i c a n s were n o t t r a i n e d or appo in ted t o t h e h i g h e r l e v e l s o f management, which

were f i l l e d mainly by e x p a t r i a t e o f f i c e r s . As t h e s e e x p a t r i a t e o f f i c e r s l e a v e on

r e t i r e m e n t , t h e needs o f t h e East A f r i c a n Community f o r t h e i r rep lacement and expans ion

o f t h e i r s e r v i c e s i n c r e a s e . A d d i t i o n a l f a c t o r s , such as t h e need f o r modern iza t ion and

- 5 -

r a t i o n a l i z a t i o n o f t h e s t r u c t u r e s o f t h e s e i n s t i t u t i o n s and t h e p o l i c y o f t h e t h r e e

Governments f o r r a p i d l o c a l i z a t i o n o f t h e s e r v i c e s , have combined t o make t h e q u e s t i o n

o f manpower t r a i n i n g o f paramount inç ior tance . Equa l ly important i s t h e urgent nêed t o

i n j e c t i n t o t h e s e r v i c e s new a g g r e s s i v e t a l e n t t o c o u n t e r a c t t h e o l d i n h e r i t e d c o n c e p t s

and p r a c t i c e s t h a t are no t conduc ive t o r a p i d p r o g r e s s i n m o d e r n i z a t i o n .

20 . Recrui tment t o t h e s e r v i c e s o f the Community i s through:

(a) d i r e c t appointment o f p e o p l e a l r e a d y t r a i n e d i n t h e Government s e r v i c e s or

p r i v a t e u n d e r t a k i n g s • This source i s o n l y e f f e c t i v e i n a l i m i t e d way, mainly f o r

t h e g e n e r a l a d m i n i s t r a t i v e a c t i v i t i e s ;

(b) t r a i n i n g i n t h e n a t i o n a l i n s t i t u t i o n s i n p a r t n e r S t a t e s f o r , a g a i n ,

g e n e r a l i s t s i n a d m i n i s t r a t i o n and economics ;

( c ) t r a i n i n g i n i t s own s e c t o r a l t e c h n i c a l i n s t i t u t i o n s i n a c t i v i t i e s a s s i g n e d

t o t h e Goinmunity a lone and f o r which no n a t i o n a l c o u n t e r p a r t s e x i s t i n t h e

p a r t n e r S t a t e s , such as t e l e c o m m u n i c a t i o n s , m e t e o r o l o g i c a l s e r v i c e s , c i v i l

a v i a t i o n , e t c . •

21 . The p r o s p e c t s f o r s t a f f i n g t h e v a r i o u s Community i n s t i t u t i o n s by d i r e c t t r a n s f e r

from n a t i o n a l p u b l i c s e r v i c e s o f t h e p a r t n e r S t a t e s are l i m i t e d by t h e g e n e r a l l y low

s t a t e o f development i n manpower t r a i n i n g f o r b a s i c n a t i o n a l needs and t h e non-

e x i s t e n c e o f s k i l l s i n t h e f i e l d s o f common s e r v i c e d e l e g a t e d t o EAC. Yet t h e

Community must observe d e l i c a t e b a l a n c e s o f r e p r e s e n t a t i o n , e n s u r i n g f u l l p a r t i c i -

p a t i o n i n t h e a c t i v i t i e s o f t h e Community by a l l p a r t n e r S t a t e s , The I n s p e c t o r s were

h i g h l y i n ç r e s s e d by t h e Governments1 v ery l i b e r a l i n t e r p r e t a t i o n o f t h i s p o i n t a t the

p r e s e n t s t a g e , which has meant t h a t none of t h e s e r v i c e s s u f f e r s as a r e s u l t . They

were a l s o f a v o u r a b l y impressed by t h e Governments1 f l e x i b l e a t t i t u d e s towards r e c r u i t -

ment o u t s i d e East A f r i c a f o r s k i l l s t h a t are no t now a v a i l a b l e i n t h e p a r t n e r S t a t e s .

2 2 . The s e t t i n g up o f Community t r a i n i n g i n s t i t u t i o n s has been a l o g i c a l s o l u t i o n t o

a problem t h a t i s b a s i c i n t h e d e v e l o p i n g c o u n t r i e s f o r b o t h s h o r t and l o n g - t e r m p l a n s .

The s i x UNDP-ass i s ted i n s t i t u t i o n s t h a t t h e I n s p e c t o r s v i s i t e d come mainly under f o u r

major s e c t o r s o f t h e s e r v i c e s of t h e Community:

C i v i l a v i a t i o n

M e t e o r o l o g i c a l s e r v i c e s

S e n i o r s t a f f management and c l e r i c a l t r a i n i n g

P o s t and t e l ecommunicat ions s e r v i c e s

- 6 -

23® The enormous advantages o f c o n d u c t i n g common s e r v i c e s through t h e East A f r i c a n

Community on b e h a l f o f t h e Governments o f Kenya, Tanzania and Uganda are wel l -known

t o t h e p a r t n e r S t a t e s and t o t h e i n t e r n a t i o n a l community t h a t i s a s s i s t i n g t h e t h r e e

c o u n t r i e s through t h e U n i t e d N a t i o n s t e c h n i c a l c o - o p e r a t i o n a c t i v i t i e s . Thi s i s a l s o

t r u e t o an even l a r g e r e x t e n t o f t h e b i l a t e r a l e f f o r t s .

2Д. For e v e r y p r o j e c t c a r r i e d ou t j o i n t l y i n Eas t A f r i c a w i t h Uni ted Nat ions

t e c h n i c a l a s s i s t a n c e enormous s a v i n g s are a c h i e v e d , a s o t h e r w i s e t h r e e s i m i l a r

p r o j e c t s , one f o r each c o u n t r y , would be n e c e s s a r y - t h u s t r e b l i n g t h e c o s t t o bo th

t h e i n d i v i d u a l Eas t A f r i c a n country and t h e Uni ted N a t i o n s • S i m i l a r l y , t h e r e p e r -

c u s s i o n s o f f a i l u r e s o f t h e Eas t A f r i c a n Community are more s e r i o u s i n a r e g i o n a l

p r o j e c t t h a n i n a n a t i o n a l p r o j e c t .

( c ) F i n a n c i a l Support

2 5 . The major c o n t r i b u t o r s t o t h e f i n a n c i a l support o f t h e r e g i o n a l t r a i n i n g

p r o j e c t s are t h e East A f r i c a n Governments and t h e UNDP. Some o f t h e i n s t i t u t i o n s have

r e c e i v e d f u r t h e r f i n a n c i a l support from b i l a t e r a l s o u r c e s , as i s t h e c a s e w i t h t h e new

c e n t r e f o r t h e East A f r i c a n Community ( S t a f f ) Management I n s t i t u t e a t Arusha, t o which

t h e Swedish Government has donated a b u i l d i n g grant o f £ 3 5 0 , 0 0 0 .

2 6 . The UNDP and t h e Government f i n a n c i a l c o n t r i b u t i o n s as agreed i n t h e v a r i o u s 5 / 一

p r o j e c t documents are summarized i n t h e f o l l o w i n g t a b l e " :

( i n US.)

P r o j e c t Governments UNDP T o t a l

E.A. S c h o o l o f A v i a t i o n 1 , 9 Л 9 , Ю 0 950,37Л 2 ,899 ,Д7Л E.A. F l y i n g S c h o o l 3 , 2 8 7 , 0 0 0 2 , 2 5 1 , 2 2 0 5 , 5 3 8 , 2 2 0 E.A. Rai lways and

2 , 2 5 1 , 2 2 0 5 , 5 3 8 , 2 2 0

Harbours T r a i n i n g and Development 1 ,4Л6 ,357 1 , Л 6 7 , 3 3 3 2 , 9 1 3 , 6 9 0

E . A � Té lécommunicat ions and. P o s t a l T r a i n i n g 8 , 0 9 1 , 0 0 0 1 , 9 1 3 , 5 0 0 10,004-, 500

E.A. I n s t i t u t e f o r M e t e o r o l o g i c a l T r a i n i n g and Research 1 , 2 0 1 , 0 0 0 1 , 3 6 8 , 0 0 7 2 , 5 6 9 , 0 0 7

V o c a t i o n a l T r a i n i n g 1 , 3 6 8 , 0 0 7 2 , 5 6 9 , 0 0 7

Centre 6 0 2 , 0 0 0 3 7 9 , 8 0 0 9 8 1 , 8 0 0

T o t a l s 16,576,4-57 8 , 3 3 0 , 2 3 Л 2Л, 9 0 6 , 6 9 1

5 / Document: UNDP/MIS/Series A/No. 1 (as o f 30 June 1972)

一 7 -

2 7 . These f i g u r e s vary somewhat from document t o document, but t h e y are a s u f f i c i e n t

i n d i c a t i o n o f t h e s i z e o f t h e programmes e n t r u s t e d t o t h e i n t e r n a t i o n a l community t o

a s s i s t t h e Eas t A f r i c a n Governments i n p r o v i d i n g a s t e a d y f l o w o f l o c a l l y t r a i n e d

t e c h n i c i a n s and a d m i n i s t r a t o r s .

2 8 . The above t a b l e shows t h a t t h e Eas t A f r i c a n Governments have committed more than

t w i c e a s much as t h e UNDP o f t h e i r s c a r c e r e s o u r c e s t o t h e t r a i n i n g p r o j e c t s and t h e

t o t a l f i n a n c i a l conniitment e x c e e d s US$25 m i l l i o n , which by Eas t A f r i c a n s tandards i s a

v a s t amount. An a d d i t i o n a l sum, e q u i v a l e n t t o US$1,5 m i l l i o n w i l l be spent f o r t h e

e x t e n s i o n o f t h e Rai lways and Harbours T r a i n i n g P r o j e c t by one and a h a l f y e a r s .

2 9 . The Eas t A f r i c a n Governments1 f i n a n c i n g o f t h e p r o j e c t s i s through t h e Eas t

A f r i c a n Gonmiiinity, p a r t l y from t h e l a t t e r * s budget and p a r t l y from t h e budge t s o f t h e

Corporat ions concerned . These arrangements appear t o be working w e l l but some

inç)rovement i s d e s i r a b l e i n t h e c a s e o f c e r t a i n i n d i v i d u a l i n s t i t u t i o n s .

30 . On t h e i n t e r n a t i o n a l s i d e , apar t from d i r e c t UNDP c o n t r i b u t i o n t o the p r o j e c t s ,

some o f t h e i n s t i t u t i o n s r e c e i v e f e l l o w s h i p s from t h e UN f a m i l y or i n d i v i d u a l

governments o u t s i d e t h e East A f r i c a n Community, t o e n a b l e s t u d e n t s îrom o t h e r

c o u n t r i e s t o b e n e f i t from t h e t r a i n i n g c o u r s e s . The I n s p e c t o r s were p a r t i c u l a r l y

d i g r e s s e d by t h e s u c c e s s f u l u s e o f f e l l o w s h i p s i n t h e I n s t i t u t e f o r M e t e o r o l o g i c a l

T r a i n i n g and Research by t h e U o r l d M e t e o r o l o g i c a l Organizat ion» This achievement i s a

c r e d i t t o WMO and i t r e p r e s e n t s a p o s i t i v e d r i v e t o u t i l i z e f u l l y r e g i o n a l

i n s t i t u t i o n s t o meet r e g i o n a l needs a t v a r i o u s l e v e l s o f t r a i n i n g .

(d) P l a n n i n g and A d m i n i s t r a t i o n o f t h e R e g i o n a l T r a i n i n g P r o j e c t s

31 . Most o f t h e t r a i n i n g p r o j e c t s v i s i t e d i n Eas t A f r i c a were s t a r t e d j o i n t l y by t h e

i n d i v i d u a l s e r v i c e s or departments of t h e Eas t A f r i c a n Community and t h e s p e c i a l i z e d

agency concerned . There were no c e n t r a l o r g a n i z a t i o n s on e i t h e r s i d e t o ensure common

measures f o r de termin ing t r a i n i n g p r i o r i t i e s f o r t h e Conmiiinity as a whole or c o -

o r d i n a t i o n o f e f f o r t s i n e i t h e r p l a n n i n g or programme a d m i n i s t r a t i o n . This p o s i t i o n

shou ld now improve through t h e i n t r o d u c t i o n of t h e new measures f o r country

programming^ which p l a c e t h e r e s p o n s i b i l i t y i n t h e hands o f member s t a t e s and UNDP�

But t h e p o s i t i o n r e g a r d i n g c o o r d i n a t i o n o f e f f o r t "between t h e v a r i o u s departments or

s e r v i c e s o f t h e Community t r a i n i n g progrannies remains l a r g e l y u n s a t i s f a c t o r y .

32 . At t h e l o c a l l e v e l , UNDP has e v o l v e d an a d m i n i s t r a t i v e s t r u c t u r e t h a t p l a c e s a l l

r e g i o n a l p r o j e c t s i n t h e East A f r i c a n Community d i r e c t l y under t h e UNDP r e s i d e n t

r e p r e s e n t a t i v e f o r Kenya i n m a t t e r s o f p l a n n i n g and f i n a n c i n g , but d a y - t o - d a y

a d m i n i s t r a t i o n and c o n t a c t w i t h t h e h o s t Government i s t h e r e s p o n s i b i l i t y o f the UNDP

r e s i d e n t r e p r e s e n t a t i v e i n each p a r t n e r S t a t e . This sys tem has a l o t o f snags . In

- 8

t h e f i n a l a n a l y s i s t h e r e g i o n a l p r o j e c t s l o s e t h e i r impact on t h e Community through

a l a c k o f c o h e s i v e n e s s i n UNDP a u t h o r i t y . The appointment f o r t h e f i r s t t ime l a s t

y e a r o f a UNDP r e p r e s e n t a t i v e a t t h e Eas t A f r i c a n Commiinity Headquarters i n Arusha as

r e s i d e n t l i a i s o n o f f i c e r d i r e c t l y under t h e r e s i d e n t r e p r e s e n t a t i v e f o r Kenya i s an

inprovement i n t h e a d m i n i s t r a t i o n o f t h e r e g i o n a l p r o j e c t s .

33. ¥ i t h t h e e x c e p t i o n o f t h e I n t e r n a t i o n a l Labour O r g a n i s a t i o n , none o f the

e x e c u t i n g a g e n c i e s i n v o l v e d i n t h e above r e g i o n a l t r a i n i n g p r o j e c t s have a r e g i o n a l

o f f i c e i n Eas t A f r i c a and a l l t h e programming or s u p e r v i s i o n i s c a r r i e d out d i r e c t l y

from t h e h e a d q u a r t e r s o f t h e a g e n c i e s . Thi s f a c t o r does i n ç l y a g r e a t e r r e l i a n c e on

t h e l o c a l a d m i n i s t r a t i v e machinery o f t h e UNDP and t h e East A f r i c a n Community f o r t h e

n e c e s s a r y d a y - t o - d a y c o n t a c t f o r o p e r a t i o n a l e f f i c i e n c y and support .

The p r e s e n t a d m i n i s t r a t i v e p a t t e r n s and s t r u c t u r e s o f b o t h t h e Uni ted N a t i o n s

o r g a n i z a t i o n s and t h e East A f r i c a n Community have been i n a s t a t e o f c o n t i n u a l

e v o l u t i o n . ¥ i t h a l i t t l e more c o n c e r t e d e f f o r t on t h e p a r t o f bo th p a r t i e s , an

e f f e c t i v e a d m i n i s t r a t i v e machinery , capab le o f mee t ing a l l t h e l o c a l r e g i o n a l needs i n

p l a n n i n g , s u p e r v i s i o n and r e g u l a r r e v i e w s o f r e g i o n a l p r o j e c t s c o u l d be p e r f e c t e d .

The I n s p e c t o r s t o o k n o t e o f t h e adequacy o f t h e e x i s t i n g l e g i s l a t i v e machinery i n UNDP

and i n t h e Eas t A f r i c a n Community and i t s deep concern f o r t h e development programmes

and p o l i c i e s . U n f o r t u n a t e l y , however , n e i t h e r body h a s , so f a r , p a i d s u f f i c i e n t

a t t e n t i o n t o a c t u a l r e s u l t s o f t h e o p e r a t i o n s i n t h e f i e l d �

Chapter I I I

APPRAISAL OF THE OPERATIONS OF THE UNDP-ASSISTED TRAINING CENTRES IN

EAST AFRICA

A. General Observat ions

35 . From t h e numerous open and f r a n k d i s c u s s i o n s h e l d w i t h s e n i o r o f f i c i a l s o f t h e

Eas t A f r i c a n Gonmiunity and w i t h government r e p r e s e n t a t i v e s on t h e main o b j e c t i v e s and

purpose o f each p r o j e c t v i s i t e d , t h e I n s p e c t o r s were a b l e t o i d e n t i f y a number o f

i n p o r t a n t d e f e c t s i n t h e t r a i n i n g programmes, which became apparent f r o m - t h e s tudy of

t h e p r o j e c t documents and t h e a c t u a l ach ievements o f t h e i n s t i t u t i o n s . The main ones

are a s f o l l o w s :

(a ) P r o j e c t o b j e c t i v e s

36 . In t h e c a s e o f t h e s i x p r o j e c t s v i s i t e d by t h e I n s p e c t o r s t h e r e are no t o n l y

s u b s t a n t i a l d i f f e r e n c e s between t h e o b j e c t i v e s o f the p r o j e c t document and the g o a l s

pursued or a c h i e v e d by t h e e x e c u t i n g a g e n c i e s , but some o f t h e programmes a l s o l a c k

t h e e s s e n t i a l u n i t y n e c e s s a r y f o r an i n t e g r a t e d p r o j e c t . A c e r t a i n amount o f vagueness

一 9 -

i n t h e p r o j e c t document has n o t h e l p e d t h e p r o j e c t manager or Governments t o ach i eve

t h e d e s i r e d g o a l s • This o b s e r v a t i o n a p p l i e s t o most o f t h e p r o j e c t s , but i t i s

p a r t i c u l a r l y t r u e o f t h e V o c a t i o n a l T r a i n i n g Centre (RAF-71-201) and, t o a c e r t a i n

e x t e n t , t h e East A f r i c a n Rai lways and Harbours T r a i n i n g and Development P r o j e c t

(RAF-68-109) .

(b) Timing o f t h e p r o j e c t s

37 . The I n s p e c t o r s r e c o g n i z e d two f a c t o r s t h a t have i n f l u e n c e d t h e p r e p a r a t i o n and

e x e c u t i o n o f t h e p r o j e c t s under r e v i e w . One i s t h e t i m i n g e lement o f t h e t r a i n i n g

programmes and t h e o t h e r t h e l a c k o f e f f e c t i v e l o c a l p a r t i c i p a t i o n i n t h e p r o j e c t s t h a t

have run i n t o d i f f i c u l t i e s ,

38 . One o f t h e p r o j e c t s was approved i n June 1966 and i s t h e r e f o r e one and a h a l f

y e a r s o l d e r than t h e Community i t s e l f . Another was approved by t h e Governing Counci l

o f UNDP i n June 1968 , s i x months a f t e r t h e Eas t A f r i c a n Gommunity came i n t o b e i n g .

Approval o f t h e o t h e r p r o j e c t s f o l l o w e d two or t h r e e y e a r s l a t e r . These f a c t s had a

c o n s i d e r a b l e e f f e c t on t h e way t h e programmes were e x e c u t e d . A l l t h e s t r u c t u r a l

changes i n the s e r v i c e s a l s o had an e f f e c t on t h e t r a i n i n g programme, p a r t i c u l a r l y on

t h e degree o f e f f e c t i v e p a r t i c i p a t i o n by s e n i o r o f f i c i a l s .

( c ) Pro. iect s e l e c t i o n and programme

39 . The i n i t i a t i v e f o r e s t a b l i s h i n g r e g i o n a l p r o j e c t s b e f o r e t h e i n t r o d u c t i o n o f the

new UNDP country programming procedures was t h e r e s p o n s i b i l i t y o f t h e e x e c u t i n g agency

concerned . The e f f e c t o f such procedures w i t h t h e acconç)anying promotion d r i v e are

v i s i b l e i n some o f t h e p r o j e c t s and such e f f e c t s r e c u r a t a l l s t a g e s o f t h e p r o j e c t s

l i f e . The p r o j e c t f o r a V o c a t i o n a l Tra in ing Centre (RAF-71-201) would n o t , i n t h e

I n s p e c t o r s 1 v i e w , have q u a l i f i e d f o r support by t h e i n t e r n a t i o n a l community. Not only

was t h e p r o j e c t a wrong c h o i c e on t h e b a s i s o f top p r i o r i t i e s f o r t e c h n i c a l a s s i s t a n c e

i n t h e t r a i n i n g requirements of t h e East A f r i c a n Gommunity, but i t has met w i t h great

d i f f i c u l t i e s a t every s t a g e o f i t s e x e c u t i o n .

ДО. R a t i o n a l p r o c e s s f o r t h e a d m i n i s t r a t i o n of a u n i f i e d t r a i n i n g programme was

abandoned i n t h e e x e c u t i o n o f t h e East A f r i c a n c i v i l a v i a t i o n t r a i n i n g programme by

a c c e p t i n g t o sponsor two t r a i n i n g s c h o o l s i n two d i f f e r e n t p l a c e s , a t Na irob i and

S o r o t i r e s p e c t i v e l y , f o r p r o j e c t s RAF -66-081 and The e x e c u t i n g agency

(工CAO) i s o p e r a t i n g an i d e n t i c a l programme s u c c e s s f u l l y a t Lusaka as a s i n g l e p r o j e c t .

The I n s p e c t o r s hope t h a t t h e Community and t h e p a r t n e r S t a t e s w i l l make every e f f o r t

t o b r i n g t h e two s c h o o l s under one r o o f , which w i l l g r e a t l y i n c r e a s e t h e c a p a c i t y of

the s c h o o l f o r e f f e c t i v e t r a i n i n g , and cut t h e expendi ture d r a s t i c a l l y on t h e p r e s e n t

d u p l i c a t i o n of a d m i n i s t r a t i o n and c o s t s � o f equipment and s t a f f .

一 10 -

(d) A d m i n i s t r a t i v e d e l a y s

4 1 . The p r o c e s s i n g o f t h e p r o j e c t documents i n a l l t h e East A f r i c a n r e g i o n a l

t r a i n i n g programmes has been a g r e a t c a u s e o f concern t o t h e I n s p e c t o r s (See p a r a . 3 0 ) .

The problem was c r e a t e d by t h e u n r e a s o n a b l e d e l a y s i n s i g n i n g t h e p r o j e c t documents by

t h e Governments o f t h e p a r t n e r S t a t e s . In P r o j e c t RAF—71—199 f o r i n s t a n c e , t h e UNDP

approva l i s da ted January 1971 but t h e w planop n was s i g n e d by t h e Governments i n

March 1973， more t h a n two y e a r s l a t e r . In another p r o j e c t (RAF-71-201) t h e "planop"

was s i g n e d one and a h a l f y e a r s a f t e r UNDP a p p r o v a l . Thi s k i n d o f d e l a y produces

c o n s i d e r a b l e a d m i n i s t r a t i v e and t r a i n i n g d i f f i c u l t i e s . However, the I n s p e c t o r s

welcomed t h e news t h a t t h e Eas t A f r i c a n Governments have now agreed on new methods o f

h a n d l i n g t h i s p a r t i c u l a r problem by s i n ç l i f y i n g t h e p r o c e s s o f approva l and by t h e

d e l e g a t i o n o f t h e i r powers t o t h e s e n i o r o f f i c i a l s o f t h e East A f r i c a n Community.

There have a l s o been d e l a y s i n some p r o j e c t s i n t h e r e c r u i t m e n t and appointment of

e x p e r t s •

( e ) The appointment o f c o u n t e r p a r t p e r s o n n e l

42 # One o f t h e most c r u c i a l problems f a c i n g a l l t h e Eas t A f r i c a n r e g i o n a l t r a i n i n g

programmes v i s i t e d by t h e I n s p e c t o r s i s t h e f a i l u r e o f t h e Governments t o appoint a t

t h e r i g h t t i m e t h e c o u n t e r p a r t p e r s o n n e l p r o v i d e d f o r i n t h e p r o j e c t document,

i n c l u d i n g t h e n a t i o n a l p r o j e c t managers. The absence o f e x p r e s s i o n o f r e a l concern on

t h i s problem by t h e e x e c u t i n g a g e n c i e s , t h e UNDP a d m i n i s t r a t i o n and t h e Government

o f f i c i a l s r e s p o n s i b l e f o r t h e a d m i n i s t r a t i o n o f t h e t r a i n i n g c e n t r e s , came as a g r e a t

shock t o t h e I n s p e c t o r s . The r e s p o n s i b i l i t y f o r f i n d i n g t h e s o l u t i o n t o t h e problem

i s l a r g e l y t h a t o f t h e r e q u e s t i n g Governments, but no e x e c u t i n g or p a r t i c i p a t i n g

a g e n c y , i n c l u d i n g UNDP, can be f r e e from blame f o r knowing o f t h e e x i s t e n c e o f t h i s

problem i n A f r i c a i n p a r t i c u l a r and do ing n o t h i n g t o r e s o l v e i t .

ДЗ. In a lmos t a l l t h e p r o j e c t s r e v i e w e d , t h e appointment o f t h e c o u n t e r p a r t

p e r s o n n e l , who are supposed t o t a k e over t h e t e a c h i n g when t h e p r o j e c t s are c o n p l e t e d ,

has been s u b j e c t t o l o n g d e l a y s . This was t h e c a s e w i t h P r o j e c t RAF-71-199 (East

A f r i c a n I n s t i t u t e f o r Meteorology T r a i n i n g and Research) and P r o j e c t RAF-71-201

( V o c a t i o n a l T r a i n i n g Centre) as w e l l as P r o j e c t RAF-68-109 (East A f r i c a n Rai lways and

Harbours T r a i n i n g and Development)•

UU. The Eas t A f r i c a n S c h o o l o f A v i a t i o n p r o j e c t , completed l a t e l a s t y e a r , was

f a c i n g a v e r y d i f f i c u l t s t a f f problem because some of t h e c o u n t e r p a r t p e r s o n n e l

t r a i n e d under Uni ted N a t i o n s t e c h n i c a l a s s i s t a n c e had been , or were on t h e

p o i n t o f b e i n g , t r a n s f e r r e d t o o ther j o b s . Even the P r i n c i p a l had been a c t i n g

i n an_ i n t e r i m c a p a c i t y f o r n e a r l y f o u r y e a r s . The " i n t e r n a t i o n a l s tandard o f

teaching 1 1 aimed a t by 工CAO and UNDP i s , f o r t h i s r e a s o n , s e r i o u s l y i n danger of

d e t e r i o r a t i n g . The morale o f bo th t h e t e a c h i n g s t a f f and s t u d e n t s cannot be inçiroved.

or jna inta ined by t h i s k i n d of d e c i s i o n . The e x e c u t i n g agency and t h e r e s i d e n t

r e p r e s e n t a t i v e o f UNDP, must i n ç r e s s upon s e n i o r o f f i c i a l s of t h e Conmiunity t h e

i n ç o r t a n c e o f k e e p i n g t h e t r a i n e d p e r s o n n e l on t h e job u n t i l t h e y i n turn have t r a i n e d

t h e i r s u c c e s s o r s . IGAO has e s t a b l i s h e d an e x c e l l e n t p r a c t i c e o f a f o l l o w - u p

i n s p e c t i o n two y e a r s a f t e r t h e c o n ç l e t i o n of t h e p r o j e c t t o ensure cont inued

e f f i c i e n t performance o f such a p r o j e c t . The o c c a s i o n o f t h e i r f i r s t i n s p e c t i o n

v i s i t should p r o v i d e an o p p o r t u n i t y f o r a f o l l o w - u p on t h i s p o i n t w i t h t h e o f f i c i a l s

o f t h e Department o f C i v i l A v i a t i o n and t h e S e c r e t a r y - G e n e r a l o f t h e East A f r i c a n

Conmiiinity.

( f ) The p r e p a r a t i o n o f p r o j e c t p e r s o n n e l

4.5• The s p e c i a l needs o f t h e l e a s t deve loped c o u n t r i e s f o r a thorough p r e p a r a t i o n o f

i n t e r n a t i o n a l e x p e r t s , e s p e c i a l l y t h a t o f p r o j e c t manager, have n o t been met i n East

A f r i c a . The I n s p e c t o r s c o n s i d e r e d t h a t t h e customary p r a c t i c e o f c a s u a l b r i e f i n g f o r

two or t h r e e days a t t h e headquarters o f t h e e x e c u t i n g agency i s r e s p o n s i b l e f o r many

f a i l u r e s i n t h e e x e c u t i o n o f t e c h n i c a l c o - o p e r a t i o n p r o j e c t s i n t h e l e a s t deve loped

c o u n t r i e s . They b e l i e v e t h a t c a r e f u l s e l e c t i o n of t h e e x p e r t s w i t h t h e r i g h t

t e c h n i c a l q u a l i f i c a t i o n s must be matched by e q u a l l y c a r e f u l b r i e f i n g and t r a i n i n g i n

l o c a l c o n d i t i o n s and n a t i o n a l n e e d s .

Accommodation

Д6. The b u i l d i n g f a c i l i t i e s - c las sroom and workshops - are r e a s o n a b l y good i n a l l

t h e p r o j e c t s e x c e p t one . The m a j o r i t y o f them were i n h e r i t e d from the c o l o n i a l

p e r i o d . The new b u i l d i n g s t h a t are now coming up have a l l the modern a m e n i t i e s , w h i l e

bo th o l d and new b u i l d i n g s have adequate and modern equipment# I t i s t h e boarding

f a c i l i t i e s t h a t seem t o have r e c e i v e d very l i t t l e a t t e n t i o n from t h e p a r t i e s i n v o l v e d

- t h e East A f r i c a n Community and s p e c i a l i z e d a g e n c i e s . The East A f r i c a n e x p e r i e n c e

w i t h t r a i n i n g i n s t i t u t i o n s would i n d i c a t e t h e n e c e s s i t y f o r a modern and p r o g r e s s i v e

approach t o t h i s problem.

R e g i o n a l Co-opera t ion

Д7. Most o f t h e East A f r i c a n c o u n t r i e s have many i d e n t i c a l development problems,

as w e l l as "common p o v e r t y " . But t h e f a c t t h a t some are E n g l i s h - s p e a k i n g and o t h e r s

French—speaking has a c t e d as a b a r r i e r between them. The I n s p e c t o r s were t h e r e f o r e

p l e a s e d t o f i n d i n one o f t h e p r o j e c t s a s u c c e s s f u l c o l l a b o r a t i o n , and very much hope

t h a t t h e p r o c e s s of t e c h n i c a l and s c i e n t i f i c c o l l a b o r a t i o n between t h e E n g l i s h -

speaking and French-speaking c o u n t r i e s i n East A f r i c a w i l l i n f u t u r e r e c e i v e more

_ 12 -

encouragement from t h e Uni ted N a t i o n s f a m i l y , e s p e c i a l l y a t t h e graduate s tudent

l e v e l . S i m i l a r l y , t h e p a r t i c i p a t i o n o f s t u d e n t s from E n g l i s h - s p e a k i n g c o u n t r i e s

o u t s i d e t h e Goimunity i n t h e Community t r a i n i n g programmes should be g r e a t l y

i n c r e a s e d . Converse ly , t h e p a r t i c i p a t i o n o f East A f r i c a n s t u d e n t s i n t h e r e g i o n a l

t r a i n i n g c e n t r e s o u t s i d e t h e Community should h e l p t o encourage a ba lanced r e g i o n a l

c o - o p e r a t i o n , e s p e c i a l l y i n t r a i n i n g programmes, but o n l y two o f t h e p r o j e c t documents

have p r o v i s i o n f o r o u t s i d e f e l l o w s h i p s . The East A f r i c a n I n s t i t u t e f o r M e t e o r o l o g i c a l

T r a i n i n g and Research has s u c c e s s f u l l y a c h i e v e d t h e t w i n c o l l a b o r a t i o n between t h e

E n g l i s h — and French- speak ing n a t i o n s and between t h e Eas t A f r i c a n Community and o t h e r

E n g l i s h - s p e a k i n g c o u n t r i e s i n A f r i c a •

Д8. A s i m i l a r s u c c e s s w i t h t h e Engl ish-rspeaking c o u n t r i e s o u t s i d e t h e Community i s

r e c o r d e d by t h e Eas t A f r i c a n Schoo l o f A v i a t i o n . There are equal s u c c e s s e s i n a

number o f n a t i o n a l t r a i n i n g programmes such as t h e C o l l e g e o f A f r i c a n W i l d l i f e

Management i n Tanzania (URT-70-530) and t h e East A f r i c a n Schoo l of L i b r a r i a n s h i p o f t h e

Makerere U n i v e r s i t y , Kampala i n Uganda (RAF-68-539) .

Д9. The East A f r i c a n Commiinity has very h e a l t h y a t t i t u d e s t o a l l t h e ne ighbours o f

t h e p a r t n e r S t a t e s and t h e p r o v i s i o n f o r i n c l u s i o n o f o u t s i d e f e l l o w s h i p s i n t h e r e c e n t

p r o j e c t documents i s e v i d e n c e o f t h e i r d e s i r e t o c o l l a b o r a t e w i t h t h e s e ne ighbour ing

c o u n t r i e s .

Second and Third Phases

50 . The I n s p e c t o r s were alarmed a t t h e number o f p r o j e c t s t h a t were i n t e n d e d t o go

i n t o second or even t h i r d p h a s e s d e s p i t e t h e generous p r o v i s i o n of p r e - p r o j e c t p a r t i a l

a l l o c a t i o n s . This i s t r u e o f t h e C i v i l A v i a t i o n programme which i n f a c t i s i n i t s

second phase a l r e a d y , and t h e Eas t A f r i c a n Rai lways and Harbours Tra in ing and

Development, and t h e M e t e o r o l o g i c a l Tra in ing and Research . They c o n s i d e r t h a t a

p r o p e r l y c o n c e i v e d and e x e c u t e d p r o j e c t very seldom r e q u i r e s a n second phase". The

second phase i s i n many c a s e s p r o o f o f t h e f a i l u r e o f t h e f i r s t phase . I t should be

p o s s i b l e i n a few c a s e s , where t h i s i s n e c e s s a r y , t o l e a v e one or two UN e x p e r t s on

t h e p r o j e c t t o h e l p t h e i n s t i t u t i o n t o c o n f í e t e i t s t r a i n i n g o f c o u n t e r p a r t s or s e t up

a s p e c i f i c new c o u r s e . An u n l i m i t e d r e p e a t performance i s very c o s t l y f o r t h e

d e v e l o p i n g c o u n t r i e s , who must maximize t h e use o f t h e r e s o u r c e s i n t h e I n d i c a t i v e

P l a n n i n g F igure ( IPF) .

The Superv i sory Machinery •

51. One o f t h e weakest p o i n t s i n r e g i o n a l t r a i n i n g i n s t i t u t i o n s i s t h e absence o f

e f f e c t i v e s u p e r v i s o r y organs； t h i s i s o f t e n compounded by t h e narrow a t t i t u d e o f Ш

e x p e r t s and t h e i r p r o j e c t managers regard ing t h e i r r e s p o n s i b i l i t y i n t h e t o t a l t r a i n i n g

一 1 3 -

programme. T r a i n i n g i n s t i t u t i o n s more than any o t h e r s need s t r o n g govern ing b o d i e s

t o f o r m u l a t e p o l i c i e s t o make v i t a l t h e d e c i s i o n s t h a t t h e P r i n c i p a l may need t o

i n c l e m e n t and f i n a l l y t o ensure p u b l i c suppor t . The e x i s t e n c e o f e f f e c t i v e governing

b o d i e s i n n a t i o n a l i n s t i t u t i o n s , i n a d d i t i o n t o t h e o f f i c i a l heads of t h e s e r v i c e s ,

makes UNDP-ass i s ted i n s t i t u t i o n s l o o k l i k e s e c o n d - r a t e o n e s . This i s c e r t a i n l y one

a s p e c t o f t e c h n i c a l c o - o p e r a t i o n t h a t t h e Uni ted N a t i o n s f a m i l y must n o t take f o r

granted i n t h e l e a s t deve loped c o u n t r i e s . C lose s u p e r v i s i o n and c o - o p e r a t i o n w i t h t h e

l o c a l p e o p l e are n e c e s s a r y t o ensure s u c c e s s dur ing t h e p r o j e c t p e r i o d and a f t e r .

B. The Operat ions o f t h e T r a i n i n g P r o j e c t s

1 . P r o j e c t : RAF—71—1992 The Eas t A f r i c a n I n s t i t u t e f o r M e t e o r o l o g i c a l T r a i n i n g and Research

52 . The e x e c u t i n g agency f o r t h i s p r o j e c t i s t h e World M e t e o r o l o g i c a l Organ iza t ion

and t h e government agency i s t h e Eas t A f r i c a n M e t e o r o l o g i c a l Department i n c o -

o p e r a t i o n w i t h t h e U n i v e r s i t y o f N a i r o b i •

53» The purpose o f t h e p r o j e c t i s t o a s s i s t t h e Governments o f Kenya, Uganda and

Tanzania i n t h e e s t a b l i s h m e n t and i n i t i a l o p e r a t i o n o f t h e East A f r i c a n I n s t i t u t e f o r

M e t e o r o l o g i c a l T r a i n i n g and Research . As i t i s s a i d i n t h e p r o j e c t document, "The

demands f o r m e t e o r o l o g i c a l s e r v i c e s i n East A f r i c a are growing r a p i d l y . The l a r g e

i n c r e a s e i n i t s a i r and mari t ime t r a f f i c r e q u i r e more and b e t t e r f o r e c a s t s and

guidance m a t e r i a l . I t s growing a g r i c u l t u r a l , commercial and water r e s o u r c e s deve lop -

ment a c t i v i t i e s have p l a c e d heavy demands f o r b a s i c m e t e o r o l o g i c a l , a g r o c l i m a t o l o g i c a l

and h y d r o m e t e o r o l o g i c a l data f o r e f f e c t i v e p l a n n i n g " . According t o t h e l a t e s t f i g u r e s

a v a i l a b l e t h e UNDP c o n t r i b u t i o n t o t h e p r o j e c t i s US$1,369,Д93 and t h e Government

c o n t r i b u t i o n i s o f Kenyan s h i l l i n g s 1 3 , 3 6 3 , 9 0 0 , which i s r o u g h l y t h e e q u i v a l e n t o f

US$1 ,900 ,000 .

Lega l S t a t u s

5Д. UNDP approved t h e p r o j e c t i n January 1971 and t h e p r o j e c t document was s i g n e d on

22 March 1973. Thi s d e l a y o f over two y e a r s has produced many o p e r a t i o n a l d i f f i -

c u l t i e s • The p r o j e c t i t s e l f i s t h e merging o f two p r e v i o u s p r o j e c t s : a r e g i o n a l

m e t e o r o l o g i c a l t r a i n i n g c e n t r e and t h e Chair o f Meteorology a t t h e U n i v e r s i t y C o l l e g e

(now U n i v e r s i t y o f N a i r o b i ) . The East A f r i c a n I n s t i t u t e f o r M e t e o r o l o g i c a l Tra in ing

and Research e s t a b l i s h e d under t h e p r o j e c t i s a j o i n t o r g a n i z a t i o n between t h e East

A f r i c a n Community and t h e U n i v e r s i t y of N a i r o b i � The p e c u l i a r i t y o f t h e p r o j e c t i s

t h a t i t has two components, a R e g i o n a l M e t e o r o l o g i c a l Tra in ing and Research Centre

w i t h i n t h e East A f r i c a n M e t e o r o l o g i c a l Department ( t h e "Centre conponent11) and t h e

Department o f Meteorology w i t h i n t h e F a c u l t y o f S c i e n c e a t t h e U n i v e r s i t y o f Na irob i

-1Д -

( t h e " U n i v e r s i t y conponent" ) . In order t o c o - o r d i n a t e t h e c o l l a b o r a t i o n o f the

"Centre conponent11 and t h e " U n i v e r s i t y component n , t h e East A f r i c a n Community and t h e

U n i v e r s i t y o f N a i r o b i have s i g n e d a "Memorandum o f understanding" i n which i t i s

a g r e e d upon t o e s t a b l i s h а и J o i n t Eas t A f r i c a n C o u n c i l f o r M e t e o r o l o g i c a l Tra in ing and

Research"• S u b j e c t t o t h e c o n t r o l by t h e Conniunity and t h e U n i v e r s i t y , t h e Counci l i s

t h e p o l i c y - m a k i n g body on a l l m a t t e r s p e r t a i n i n g t o t h e f u n c t i o n i n g o f t h e I n s t i t u t e .

The p r o j e c t manager and t h e UNDP/WMO s t a f f are p a r t i c i p a n t s o f the f fCentre сonçorient",

t h e p r o j e c t manager b e i n g t h e head o f t h e "Centre conponent1 1 .

•Operations

5 5 . The l o n g d e l a y i n t h e s i g n i n g o f t h e p lanop (1971-1973) c r e a t e d many problems .

I t was d i f f i c u l t f o r t h e I n s p e c t o r s t o know a t which d a t e t h e p r o j e c t became o p e r a -

t i o n a l . According t o Ш 0 t h e da te i s January 1971; UNDP m a i n t a i n s i t i s i ^ r i l 1971

and t h e government agency s a y s i t i s August 1972 , t h e d a t e on which t h e p r o j e c t

manager s t a r t e d working i n t h e f i e l d . C o n s i d e r i n g t h a t t h e d u r a t i o n o f t h e p r o j e c t i s

f i v e y e a r s , t h e I n s p e c t o r s are i n agreement on t h i s p o i n t w i t h t h e government agency

t h a t t h e t e r m i n a t i o n o f t h e p r o j e c t shou ld be August 1977 . The s t a r t o f t h e p r o j e c t

w i t h " p a r t i a l a l l o c a t i o n " does n o t g i v e t h e p r o j e c t an " o p e r a t i o n a l " c h a r a c t e r ; a

sounder c r i t e r i o n i s t h e da te o f a r r i v a l o f t h e p r o j e c t manager. This should n o t inrply

i n c r e a s e d c o s t o f t h e p r o j e c t • Thi s q u e s t i o n has an inç)ortant i n p l i c a t i o n on t h e

t r a i n i n g o f t h e c o u n t e r p a r t p e r s o n n e l . The p a r t i c i p a t i o n o f t h r e e d i f f e r e n t e n t i t i e s

i n t h e p r o j e c t (Eas t A f r i c a n Community, U n i v e r s i t y o f N a i r o b i , UNDP/WMO), w i t h o u t a

c l e a r d e l i m i t a t i o n o f powers and f u n c t i o n s was i n a l a r g e measure t h e cause o f t h e

l a t e s t a r t o f t h e p r o j e c t . The advantage o f t h i s " t r i p a r t i t e " e n t e r p r i s e i s t h a t ,

a f t e r t h e t e r m i n a t i o n o f t n e p r o j e c t , t h e Eas t A f r i c a n Community and t h e U n i v e r s i t y o f

N a i r o b i w i l l f i n d i t much e a s i e r t o t a k e over t h e whole t r a i n i n g o p e r a t i o n � UNDP

s h o u l d p r o f i t from t h e e x p e r i e n c e o f t h i s t ype o f agreement .

5 6 . The l o c a l s e r v i c e s p r o v i d e d by t h e East A f r i c a n M e t e o r o l o g i c a l Department t o t h e

T r a i n i n g Centre were r e p o r t e d t o be adequate - t h e r e were some s e v e n t y - s i x p e o p l e p a i d

f o r by t h e Department. S i m i l a r l y , t h e p r o v i s i o n o f equipment and t e x t b o o k s by t h e

Department and t h e e x e c u t i n g agency were s a i d t o be a d e q u a t e � There was a l s o a

r e a s o n a b l y good r e f e r e n c e l i b r a r y f o r t h e s t u d e n t s . The U n i v e r s i t y component has very-

good b u i l d i n g f a c i l i t i e s and i n 197Д a new s c i e n c e b u i l d i n g w i l l be e r e c t e d by t h e

Gormmmity.

57 . The I n s t i t u t e 1 s r e l a t i o n s w i t h o t h e r o r g a n i z a t i o n s have not y e t deve loped f u l l y .

The J o i n t Eas t A f r i c a n Counc i l f o r M e t e o r o l o g i c a l T r a i n i n g and Research and t h e

Research and S o c i a l Counc i l o f t h e Conmiunity were e x p e c t e d t o look i n t o t h i s problem

and t h e i r v i e w s would be taken i n t o c o n s i d e r a t i o n f o r p o s i t i v e a c t i o n .

一 1 5 -

5 8 . Between 1965 , when t h e R e g i o n a l M e t e o r o l o g i c a l T r a i n i n g Centre was e s t a b l i s h e d ,

and J u l y 197Д, t h e Centre w i l l have t r a i n e d some 87 o f f i c i a l s drawn from A f r i c a n

c o u n t r i e s and N e p a l � Their d i s t r i b u t i o n i s as f o l l o w s :

59 . The s t u d e n t s from Burundi and Rwanda were r e p o r t e d t o have made v e r y good

p r o g r e s s , d e s p i t e t h e language problem which i s u s u a l l y h e l d a g a i n s t such j o i n t

v e n t u r e s .

6 0 . The U n i v e r s i t y component has a l s o done w e l l i n t h e t r a i n i n g a t t h e graduate and

p o s t - g r a d u a t e l e v e l s . The I n s p e c t o r s o b t a i n e d some o f t h e s e f i g u r e s which were a good

i n d i c a t i o n o f p r o g r e s s :

(a) Pos t -Graduate Diploma S t u d e n t s 1971 /72

Tanzania 25

Kenya 17

Uganda 10

Others 35 (Burundi , Botswana, E t h i o p i a , Malawi, N e p a l , Rwanda, Somal ia , and Yemen)

Maur i t ius

(b) Pos t -Graduate Diploma S t u d e n t s f o r 1 9 7 2 / 7 3

Kenya

Uganda 3

Tanzania 1

N i g e r i a

Ghana

S i e r r a Leone

2 (Ш0 f e l l o w s h i p s )

3 (Ш0 f e l l o w s h i p s )

1 (Ш0 f e l l o w s h i p )

1 (Ш0 f e l l o w s h i p )

Kenya 3

Uganda 5

Tanzania 1

Zambia

Ghana

U.K.

2 (Ш0 f e l l o w s h i p s )

1 (Ш0 f e l l o w s h i p )

1 (WMO f e l l o w s h i p )

(c ) B . S c . Meteorology - t h e Undergraduate Course 1 9 7 2 / 7 3 had 11 s t u d e n t s from

t h e f o l l o w i n g c o u n t r i e s :

Uganda 5

Kenya 1

Zambia U (3 Ш 0 f e l l o w s h i p s )

E t h i o p i a 1 ("WMO f e l l o w s h i p )

(d) There were more p o s t - g r a d u a t e s t u d e n t s from East A f r i c a and Malawi

r e g i s t e r e d f o r the M . S c � d e g r e e (Д) and t h e Ph.D. degree ( 2 ) .

一 1 6 -

(e ) Between 1963 and 1973 t h e Post—graduate Diploma Course has been a t t e n d e d by

some 62 s t u d e n t s from some 13 c o u n t r i e s , d i s t r i b u t e d as f o l l o w s :

36 Eas t A f r i c a n Community (Kenya 8 , Tanzania 1 0 , Uganda 18)

9 Ghana

7 N i g e r i a

2 Zambia

2 M a u r i t i u s

6 (one each) E t h i o p i a , Burundi , Malawi, L i b e r i a , S i e r r a Leone and Uni ted Kingdom

Many o f t h e s e men now h o l d t o p p o s t s i n t h e i r c o u n t r i e s �

6 1 . The I n s p e c t o r s n o t e d two s p e c i a l f e a t u r e s i n t h i s p r o j e c t :

(a) The c o n p r e h e n s i v e t r a i n i n g s t r u c t u r e t o meet t h e n a t i o n a l and r e g i o n a l needs

f o r t r a i n e d manpower a t the v a r i o u s l e v e l s o f o p e r a t i o n s f o r t h e East A f r i c a n

Gonmiunity and i t s n e i g h b o u r s i s a g r e a t achievement and t h e I n s p e c t o r s hope t h a t

t h e o t h e r major t r a i n i n g i n s t i t u t i o n s b e i n g a s s i s t e d by t h e Uni ted N a t i o n s w i l l

f o l l o w t h e example s e t i n t h i s p r o j e c t .

(b) The e x e c u t i n g agency has a f a i r amount o f money f o r f e l l o w s h i p s open t o

s t u d e n t s from o u t s i d e t h e Community, and t h e r e were seven s t u d e n t s w i t h t h i s k ind

o f f e l l o w s h i p ( t h r e e from Zambia, one each from E t h i o p i a , Malawi, S i e r r a Leone

and Ghana) dur ing t h e academic y e a r 1 9 7 2 / 7 3 .

6 2 . The f e l l o w s h i p s f o r t h e c o u n t e r p a r t p e r s o n n e l were n o t b e i n g u s e d . S e v e r a l

c a n d i d a t e s were i n t h e p i p e l i n e - mid-course f o r M.Sc. or Ph.D. The I n s p e c t o r s were

v e r y concerned by t h e f a i l u r e o f t h e p r o j e c t t o meet t h i s b a s i c requirement o f t h e

whole t r a i n i n g programme dur ing t h e l i f e o f t h e p r o j e c t and r a i s e d t h e mat ter s e v e r a l

t i m e s dur ing and a f t e r t h e v i s i t w i t h o f f i c i a l s o f t h e Government concerned i n t h e

Department and t h e Community S e c r e t a r i a t and w i t h t h e p r o j e c t o f f i c e r s as w e l l . They

found no v a l i d r e a s o n s t o j u s t i f y t h i s f a i l u r e i n t h e p r o j e c t o t h e r than t h a t

nobody seems t o have p a i d s u f f i c i e n t a t t e n t i o n t o t h e main o b j e c t i v e which i s n o t t o

t r a i n A f r i c a n m e t e o r o l o g i s t s , but t o h e l p them t o t r a i n t h e i r ОШ1 t r a i n e r s w i t h i n the

p r o j e c t p e r i o d . As t h i s f a i l u r e was no t c o n f i n e d t o one p r o j e c t and i n f a c t t h e

s t o r y was r e p e a t e d t o them over and over a g a i n i n b o t h t h e r e g i o n a l and s e v e r a l

n a t i o n a l p r o j e c t s i n c o u n t r i e s i n Eas t A f r i c a , the I n s p e c t o r s would l i k e t o h i g h l i g h t

t h e problem i n 1973 so t h a t something can be done about i t by a l l concerned - t h e UNDP

r e s i d e n t r e p r e s e n t a t i v e , Government o f f i c i a l s , t h e p r o j e c t manager and t h e e x p e r t s .

一 17 -

63• While t h e f a c i l i t i e s f o r c l a s s r o o m work r a i s e d f ew problems as t h e s e are b e i n g

expanded, t h e absence o f board ing f a c i l i t i e s a t t h e Centre , i n t h e East A f r i c a n

c o n t e x t , i s bound t o g r e a t l y reduce t h e f u l l b e n e f i t s o f t h e Course and w i l l s e v e r e l y

handicap t h e development o f c o - o p e r a t i v e e f f o r t c u l t u r a l l y and i n t e l l e c t u a l l y . Thi s

w i l l be a p i t y a f t e r c o l l e c t i n g t o g e t h e r young p e o p l e from such a wide area . When

t h i s o m i s s i o n i n t h e p l a n was r a i s e d w i t h t h e s e n i o r o f f i c i a l o f t h e M e t e o r o l o g i c a l

Department t h e p o i n t was w e l l t a k e n .

P r o j e c t Achievements and Shortcomings

6Д. There i s no doubt t h a t t h e i n i t i a l problems encountered have reduced c o n s i d e r -

a b l y t h e p o t e n t i a l v a l u e of t h e p r o j e c t . N e v e r t h e l e s s , t h e I n s p e c t o r s c o n s i d e r t h a t

t h e c o u n t r i e s t h a t are members o f the East A f r i c a n Community and many o t h e r A f r i c a n

c o u n t r i e s w i l l a c q u i r e - a t t h e t e r m i n a t i o n o f t h e p r o j e c t - t h e t e c h n i c a l know-how

f o r t h e t e a c h i n g o f Meteorology by t h e i r n a t i o n a l s . I t has been o b j e c t e d t o t h e

I n s p e c t o r s t h a t d e v e l o p i n g c o u n t r i e s have o t h e r t r a i n i n g needs w i t h g r e a t e r p r i o r i t y

over m e t e o r o l o g y . While t h e I n s p e c t o r s a p p r e c i a t e t h e f o r c e o f t h e argument t h a t t h e

t r a i n i n g i n meteoro logy w i l l produce t h e f u l l b e n e f i t s o n l y i n t h e l o n g run, t h e

programme i s w e l l - o r g a n i s e d and t h e immediate o b j e c t i v e s i n t r a i n i n g , r e s e a r c h and

s e r v i c i n g t h e l o c a l and i n t e r n a t i o n a l growing needs i n a i r and marit ime t r a f f i c are

b e i n g a d e q u a t e l y met.

6 5 . The b i g g e s t weakness i n t h e p r o j e c t was t h e l a c k o f d r i v e t o t r a i n East A f r i c a n

c o u n t e r p a r t t r a i n e r s t o work w i t h t h e i n t e r n a t i o n a l s t a f f . Hence t h e I n s p e c t o r s 1

concern and support t o t h e Government r e q u e s t on a p p r o p r i a t e p r o j e c t c l o s i n g d a t e s t o

e n a b l e them t o t r a i n t h e i r l o c a l permanent s t a f f ,

вв . The use o f WMO f e l l o w s h i p s f o r t h e t r a i n i n g o f s t u d e n t s i n meteoro logy i n t h e i r

own c l i m a t i c s e t t i n g so e f f e c t i v e l y i s a g r e a t c r e d i t t o WMO.

2. P r o j e c t RAF-71-201: V o c a t i o n a l T r a i n i n g Centre f o r t h e East A f r i c a n Community

67» The e x e c u t i n g agency f o r t h i s p r o j e c t i s t h e ILO and t h e Government agency i s

t h e D i r e c t o r a t e o f P e r s o n n e l i n t h e Finance and A d m i n i s t r a t i v e S e c r e t a r i a t o f t h e East

A f r i c a n Community.

The purpose o f t h e p r o j e c t was t o a s s i s t t h e p a r t i c i p a t i n g governments t o

e s t a b l i s h v o c a t i o n a l t r a i n i n g f a c i l i t i e s f o r new and e x i s t i n g s t a f f of t h e East

A f r i c a n Community "at t h e e x e c u t i v e , c l e r i c a l and s e c r e t a r i a l l e v e l " . 工t i s e x p e c t e d

- r e a d s t h e p r o j e c t document - t h a t , as a r e s u l t o f t h i s p r o j e c t , t h e s k i l l s o f t h e

e x i s t i n g s t a f f of t h e Community General Funds S e r v i c e s w i l l be up-graded, and

s u i t a b l e p r e - s e r v i c e t r a i n i n g w i l l be g i v e n t o p o t e n t i a l new e n t r a n t s i n t o t h e s e r v i c e ,

which w i l l m a t e r i a l l y i n c r e a s e t h e e f f i c i e n c y o f the o p e r a t i o n s o f the S e c r e t a r i a t and

i t s u s e f u l n e s s t o t h e East A f r i c a n Community,

一 1 8 -

6 8 . The meaning of t h e word w e x e c u t i v e " i n t h e f i r s t paragraph had been d i s c u s s e d -

and i s s t i l l b e i n g d i s c u s s e d 一 by UNDP, t h e e x e c u t i n g agency and t h e government

c o u n t e r p a r t . The p r o j e c t was d e s i g n e d f o r t h e t r a i n i n g of " e x e c u t i v e " p e r s o n n e l or

m a n a g e r i a l s t a f f , as t h a t e x p r e s s i o n i s g e n e r a l l y unders tood i n t h e B r i t i s h sys tem,

and t h a t i s t h e way t h a t t h e p r o j e c t , f i n a l l y , i s b e i n g inçlemeritec^^^

6 9 . The UNDP c o n t r i b u t i o n t o t h e p r o j e c t i s US$381,100 ( P r o j e c t Document), reduced

l a t e r t o US$352,800. The c o u n t e r p a r t c o n t r i b u t i o n i s o f approx imate ly US$602,000.

(Kenyan, Ugandan and Tanzanian s h i l l i n g s � , 7 2 3 , 4 7 5 ) . The UNDP e x p e n d i t u r e i n 1972

was US恭 1 4 6 , 7 0 0 ; i n 1973 i t i s e x p e c t e d t o be US$14.5,800 and i n 197厶 US$60,300.

L e g a l S t a t u s

7 0 . UNDP approved t h e p r o j e c t i n January 1971 and t h e planop was s i g n e d one year and

a h a l f l a t e r , on June 19 , 1972. The p r o j e c t became o p e r a t i o n a l through a p a r t i a l

a l l o c a t i o n , i s s u e d p r i o r t o o f f i c i a l a u t h o r i z a t i o n t o commence e x e c u t i o n . The

t e r m i n a t i o n o f t h e p r o j e c t i s t o be e x p e c t e d around t h e middle o f 197Д ( J u l y or

September) a c c o r d i n g t o ILO and UNDP.

7 1 . Very much concerned by t h e l a c k o f s e c r e t a r i a l and c l e r i c a l p e r s o n n e l , the East

A f r i c a n Community had e s t a b l i s h e d i n 1970 an Eas t A f r i c a n T r a i n i n g Centre . The UNDP/

ILO p r o j e c t was then i n j e c t e d i n t o an иоп—going concern" w i t h a t r a i n i n g p a t t e r n n o t

e n t i r e l y i n accord w i t h t h e p r o v i s i o n s o f t h e P l a n o f Qperatioru That i n j e c t i o n o f

t h e UNDP p r o j e c t i n t o a g o i n g concern gave r i s e , i n t h e f i r s t year o f o p e r a t i o n , t o

many d i f f i c u l t i e s . There was even a m i s c o n c e p t i o n o f t h e r o l e of UN T e c h n i c a l

A s s i s t a n c e , which d e l a y e d t h e p r o j e c t from becoming f u l l y o p e r a t i o n a l .

Operat ion

72 . As s t a t e d b e f o r e , t h e f i r s t year o f o p e r a t i o n o f the p r o j e c t was f r a u g h t w i t h

d i f f i c u l t i e s , because o f t h e d i f f e r e n c e of o u t l o o k on t h e o p e r a t i o n and t h e aim o f t h e

6 / Paragraph A . l o f t h e Work P l a n reads as f o l l o w s : "The East A f r i c a n Community i s s e r v e d by a C e n t r a l S e c r e t a r i a t w i t h headquarters i n Arusha, United Republ ic o f Tanzania• The e f f i c i e n t o p e r a t i o n o f t h e Community i s p r e s e n t l y t h r e a t e n e d by a s e r i o u s s h o r t a g e o f s u i t a b l y q u a l i f i e d and conipetent s t a f f , e s p e c i a l l y i n t h e middle l e v e l e x e c u t i v e , c l e r i c a l and s e c r e t a r i a l l e v e l s . The Community l a c k s t h e n e c e s s a r y f a c i l i t i e s f o r t r a i n i n g e x i s t i n g and new s t a f f , and the r a p i d expans ion i n t h e f u n c t i o n s and r e s p o n s i b i l i t i e s o f i t s S e c r e t a r i a t , which r e q u i r e a h igh degree of p e r f o r m a n c e , has t h e r e f o r e g i v e n r i s e t o s e r i o u s problems. Furthermore, as i t was s t a t e d i n one of t h e m e e t i n g s o f t h e Committee o f M i n i s t e r s (21 Feb .1969) a 1Coramunity T r a i n i n g Centre 1 would h e l p p o w e r f u l l y t o deve lop the East A f r i c a n m e n t a l i t y which the Community l e a d e r s have c o n s t a n t l y urged upon i t s s t a f f . H

一 1 9 -

p r o j e c t between t h e p r o j e c t manager ( c a l l e d Chief Adv i ser ) and the P r i n c i p a l or p e r s o n

i n charge o f t h e a l r e a d y e s t a b l i s h e d Community T r a i n i n g Centre• N e v e r t h e l e s s , t h e

s i t u a t i o n iinproved l a t e r and a working arrangement was e v e n t u a l l y e s t a b l i s h e d . The

i n t e r n a l a f f a i r s o f t h e Community had a l s o a s t r o n g i n f l u e n c e on t h e p r o j e c t becoming

f u l l y o p e r a t i o n a l . The t r a i n i n g was c e n t r a l i z e d i n t h r e e departments: (a) s e c r e t a r i a l

t r a i n i n g c o u r s e s , (b) middle and lower a d m i n i s t r a t i v e up-grad ing c o u r s e s f o r t h e

common s e r v i c e c a d r e s and (c) c o u r s e s t o promote g e n e r a l o f f i c e e f f i c i e n c y .

7 3 . The l a c k o f c o u n t e r p a r t p e r s o n n e l , e s p e c i a l l y i n departments (b) and (c) was f o r

a l o n g t ime a s e r i o u s c o n s t r a i n t t o t h e p r o j e c t ; when t h e c o u n t e r p a r t s were a p p o i n t e d ,

i t was n o t a c c o r d i n g t o t h e manning t a b l e f o r t h e p r o j e c t . A l s o , t h e manning t a b l e f o r

t h e UN s t a f f was n o t p r o p e r l y d r a f t e d i n t h e p r o j e c t document•

7Д. The equipment p r o v i d e d by t h e Government and l a t e r by the e x e c u t i n g agency was

s u i t a b l e and a r r i v e d on t i m e . The b u i l d i n g f a c i l i t i e s are o l d but r e a s o n a b l y good;

t h e same w i t h r e f e r e n c e t o t h e l i v i n g accommodation f o r t h e s t u d e n t s . There i s only-

enough accommodation f o r 6厶 s t u d e n t s i n one b u i l d i n g and f o r t h i r t y more i n ano ther .

Of c o u r s e , t h e t r a i n i n g requ irements exceed by f a r t h e p r e s e n t f a c i l i t i e s . The

Community s h o u l d pay a t t e n t i o n t o t h i s i n f u t u r e . The p o s s i b i l i t y o f moving t h e

T r a i n i n g Centre near t h e huge b u i l d i n g , t h a t t h e Community i s b u i l d i n g f o r t h e East

A f r i c a n Community S t a f f I n s t i t u t e i s a l s o b e i n g c o n s i d e r e d . The r e l a t i o n s o f t h e

T r a i n i n g Centre w i t h o t h e r UN b o d i e s has been k e p t a t a r e a s o n a b l e l e v e l . The

c o l l a b o r a t i o n w i t h t h e UNDP/UN p r o j e c t RAF-68-109 (Eaat A f r i c a n Rai lways and Harbours

T r a i n i n g and Development) lias a l s o been s a t i s f a c t o r y .

75• The p r o j e c t had no problem as r e g a r d s s t u d e n t i n t a k e j t h e Community p r o v i d e s

b u r s a r i e s f o r p r e - s e r v i c e and i n - s e r v i c e t r a i n e e s . As a matter o f f a c t , t h e need o f

t h e Community i s f o r a much l a r g e r i n t a k e . A d m i n i s t r a t i v e o f f i c e r s i n t h e s e c r e -

t a r i a t have t o w a i t unreasonably l o n g p e r i o d s o f t ime t o be a b l e t o t a k e promotion

c o u r s e s • The s e l e c t i o n o f q u a l i f i e d s t u d e n t s can now be s t r e s s e d as t h e r e i s no

l o n g e r a s h o r t a g e o f t h e s e i n East A f r i c a . The s t u d e n t - w e e k s a t t h e s e c r e t a r i a t l e v e l

( p r e - s e r v i c e and i n - s e r v i c e ) reached a t o t a l o f 2 , 6 0 � i n 1972. At t h e a d m i n i s t r a t i v e

l e v e l , t h e s t u d e n t - w e e k s were Д13»

Pro . iect Achievements and Shortcomings

7 6 . The I n s p e c t o r s b e l i e v e t h a t t h e d r a f t i n g o f t h e p r o j e c t document was n o t

f e l i c i t o u s ; even t h e purpose or o b j e c t i v e o f t h e p r o j e c t was no t c l e a r l y s t a t e d and

gave r i s e t o a d i f f e r e n c e o f o p i n i o n . I t cou ld be q u e s t i o n e d , a l s o , i f t h e East

A f r i c a n Community had no o t h e r t r a i n i n g programme w i t h p r i o r i t y over t h e t r a i n i n g o f

t y p i s t s . Thi s k i n d o f t r a i n i n g should be l e f t t o t h e Governments t h e m s e l v e s . A f t e r

一 20 -

t e n y e a r s o f i n t e r n a t i o n a l a s s i s t a n c e t h e Government i n any d e v e l o p i n g country shou ld

be a b l e t o f u l f i l t h i s t a s k more c h e a p l y than UNDP. Two p u b l i c a t i o n s o f t h e p r o j e c t ,

a S t a f f R e l a t i o n Manual and a monthly magaz ine , Community have proved t o be ex treme ly

u s e f u l .

7 7 . From t h e p o l i t i c a l and a d m i n i s t r a t i v e p o i n t o f v i e w , a t r a i n i n g c e n t r e f o r

c l e r i c a l and middle l e v e l o f f i c e r s i s e x t r e m e l y i n ç o r t a n t f o r t h e Eas t A f r i c a n Gonmiiinity

The p r o j e c t has shown c l e a r l y t o t h e s e n i o r o f f i c i a l s t h e need f o r a common approach

and t e c h n i q u e s f o r t h e i r m u l t i n a t i o n a l s t a f f through i n - s e r v i c e c o u r s e s . At t h e

b e g i n n i n g o f the y e a r t h e p r o j e c t was r e v i e w e d by r e p r e s e n t a t i v e s o f UNDP and ILO,who

recommended d r a s t i c changes which would amount t o dropping t h e p r o j e c t on t h e grounds

t h a t i t had f a i l e d and had n o t r e c e i v e d t h e support o f t h e East A f r i c a n Gonmunity. The

I n s p e c t o r s were n o t a b l e t o o b t a i n c o n f i r m a t i o n o f t h i s s t a t emen t from any o f t h e Eas t

A f r i c a n Community o f f i c i a l s t h e y i n t e r v i e w e d . On the c o n t r a r y , t h e government o f f i c e r

r e s p o n s i b l e f o r t h e p r o j e c t , t h e D i r e c t o r o f P e r s o n n e l i n t h e Finance and A d m i n i s t r a -

t i o n S e c r e t a r i a t o f t h e Eas t A f r i c a n Conimunity s p e c i f i c a l l y r e q u e s t e d t h e c o n t i n u a t i o n

o f t h e p r o j e c t . He termed t h e p r o j e c t a s b e i n g s a t i s f a c t o r i l y e x e c u t e d , e x p r e s s e d t h e

d e t e r m i n a t i o n o f t h e Commnity t o keep t h e Centre go ing a f t e r t h e t e r m i n a t i o n o f t h e

p r o j e c t and r e q u e s t e d t h a t t h e Chie f Adv i ser should be r e t a i n e d u n t i l t h e end o f t h e

o p e r a t i o n a l p h a s e .

7 8 . The I n s p e c t o r s were somewhat s u r p r i s e d t h a t t h e UNDP and t h e ILO r e p r e s e n t a t i v e s

d i d n o t I n c l u d e t h e Eas t A f r i c a n Community r e p r e s e n t a t i v e i n t h e r e v i e w team, which

would have avo ided t h e c o n f l i c t i n g v i e w s . S e c o n d l y f t h e y b e l i e v e changes were p o s s i b l e

o n l y by b r e a k i n g up t h e p r o j e c t i n t o i t s t h r e e c o n s o n a n t s， t o a l l o w t h e t r a i n i n g t o

c o n t i n u e and t o g i v e t h e Community t h e v i t a l o p p o r t u n i t y t o f i n d and t r a i n i t s о ш

t r a i n e r s .

3 . P r o j e c t : RAF-71-155: Telecommunicat ions and P o s t a l T r a i n i n g

79* The I n t e r n a t i o n a l Telecommunicat ions Union (工TU) i s the e x e c u t i n g agency f o r t h i s

v e r y l a r g e p r o j e c t and t h e Government agency i s t h e East A f r i c a n P o s t s and T e l e -

communicat ions C o r p o r a t i o n , an autonomous and s e l f — f i n a n c i n g i n s t i t u t i o n o f t h e East

A f r i c a n Community.

80 . The main o b j e c t i v e o f t h e p r o j e c t i s t o a s s i s t t h e Governments o f Kenya, Tanzania

and Uganda t o d e v e l o p t h e i r e x i s t i n g p o s t a l and t é l écommunicat ion t r a i n i n g i n s t i t u t i o n s

so t h a t t h e y can meet t h e s h o r t — and l o n g - t e r m t r a i n i n g n e e d s . The immediate

o b j e c t i v e s o f t h e p r o j e c t a r e : t h e development o f the p h y s i c a l r e s o u r c e s a t t h e

C e n t r a l T r a i n i n g S c h o o l and a t t h e t h r e e R e g i o n a l Tra in ing S c h o o l s , the inprovement o f

t e a c h i n g m a t e r i a l , c o u r s e s t r u c t u r e s , t h e i n t r o d u c t i o n o f new s p e c i a l i z e d t r a i n i n g

c o u r s e s and t o t r a i n l o c a l i n s t r u c t o r s .

一 21 -81 . The E a s t A f r i c a n P o s t s and Telecommunicat ions Corporat ion i s f a c e d w i t h major

problems o f m o d e r n i z a t i o n , t h e e x p a n s i o n o f i t s s e r v i c e s and t h s need t o o b t a i n

t r a i n e d and e f f i c i e n t s t a f f . To meet t h i s c h a l l e n g e t h e Corporat ion has e s t a b l i s h e d

f o u r t r a i n i n g i n s t i t u t i o n s w i t h t h e C e n t r a l T r a i n i n g S c h o o l f o r t h e h i g h e r l e v e l s o f

t r a i n i n g c o u r s e s and t h e t h r e e R e g i o n a l T r a i n i n g S c h o o l s a t N a i r o b i , Kampala and

Dar-es -Sa laam f o r t h e b a s i c c o u r s e s •

82. The p o s t a l and t e l e c o m m u n i c a t i o n s s e r v i c e s i n t h e p a s t were managed mainly by

e x p a t r i a t e o f f i c e r s who are now r e t i r i n g . The t r a i n i n g o f A f r i c a n s , e s p e c i a l l y a t t h e

s e n i o r l e v e l s o f a d m i n i s t r a t i o n and t e c h n i c a l s e r v i c e s was g r o s s l y n e g l e c t e d and i n

p a r t i c u l a r t h e t r a i n i n g o f t h e i n s t r u c t o r c a d r e s . Hence t h e g r e a t e f f o r t s b e i n g made

by t h e Corporat ion t o cover t h e wastage and t o meet t h e Governments1 p o l i c y o f

a f r i c a n i z a t i o n o f i t s s e r v i c e s and s e l f - r e l i a n c e and t h e i r d e s i r e t o r a p i d l y expand

p o s t a l and t e l e c o m m u n i c a t i o n s e r v i c e s t o t h e r u r a l a r e a s .

83» The Eas t A f r i c a n P o s t s and Telecommunicat ions Corporat ion has produced a

Telecommunicat ion Development P l a n 1 9 7 3 - 1 9 7 9 , t h e s u c c e s s f u l implementa t ion o f which

w i l l depend on t h e t r a i n i n g f a c i l i t i e s and c a p a b i l i t i e s t o produce t h e needed t r a i n e d

manpower w i t h i n i t s p l a n p e r i o d o f seven y e a r s . The e x i s t e n c e o f t h e Development P l a n

should help g r e a t l y t h e implementat ion o f t h e UNDP-ass i s ted p r o j e c t now b e i n g

r e q u e s t e d by t h e Eas t A f r i c a n Governments.

8Д. The f i n a n c i a l c o n t r i b u t i o n by t h e UNDP i s e s t i m a t e d a t US$1 ,913 ,500 and t h e East

A f r i c a n Governments1 c o n t r i b u t i o n a t about (E .A . ) s h i l l i n g s 2 8 , 3 2 0 , 0 0 0 which i s t h e

e q u i v a l e n t o f US$8.1 m i l l i o n . The Corporat ion has made v e r y generous budgetary-

a l l o w a n c e s f o r i t s t r a i n i n g programme,at t h e moment running a t about 4 t o 5% o f i t s

o p e r a t i n g e x p e n d i t u r e a n n u a l l y . In a d d i t i o n t o Government and UNDP, c o n s i d e r a b l e

a s s i s t a n c e i s b e i n g r e c e i v e d from b i l a t e r a l s o u r c e s .

L e g a l S t a t u s

85 . The p r o j e c t document has been p r o c e s s e d f o r q u i t e a l o n g t i m e , and t h e p r o j e c t

manager a r r i v e d i n t h e s c h o o l i n September 1972. S e v e r a l p r e p a r a t o r y o p e r a t i o n s have

s t a r t e d , but t h e Eas t A f r i c a n Governments through t h e East A f r i c a n Community have n o t

submi t t ed t h e i r o f f i c i a l r e q u e s t s y e t . Further d e l a y s l i k e t h e o t h e r s t h a t t h e

I n s p e c t o r s have a l r e a d y p o i n t e d ou t vi.11 o n l y have sad r e p e r c u s s i o n s on t h e t r a i n i n g

programme. The I n s p e c t o r s hope t h a t t h e t h r e e p a r t n e r S t a t e s w i l l f i n d ways o f

e n s u r i n g t h a t the approving a u t h o r i t y v i z t h e East A f r i c a n Community Communication

Cou n c i l w i l l t a k e t h e n e c e s s a r y s t e p s t o c o n f í e t e t h i s v i t a l l e g a l p r o c e s s .

86 . The o r i g i n a l r e q u e s t s o f t h e A f r i c a n Government t o ITU made a t a j o i n t OAU/ECA

m e e t i n g h e l d i n Addis Ababa i n March 1966 , asked f o r : (a) a survey o f t e l ecommunica t ions

一 2 2 -

t r a i n i n g r e q u i r e m e n t s i n A f r i c a , (b) t h e s e l e c t i o n o f c e r t a i n c e n t r e s t o become m u l t i -

n a t i o n a l t r a i n i n g c e n t r e s f o r h i g h e r t r a i n i n g ; and ( c ) member s t a t e s t o s e t up t h e i r

own t r a i n i n g c e n t r e s f o r b a s i c t r a i n i n g . Request (b) appears t o have been o n l y

p a r t i a l l y met i n t h e d r a f t p r o j e c t document. However, a sum o f US$120,000 has been

i n c l u d e d f o r g r o u p - t r a i n i n g , t o c a t e r f o r s t u d e n t s o u t s i d e East A f r i c a . I f the above

r e q u e s t were t o be f u l l y met , t h e p r o j e c t document shou ld s p e l l ou t c l e a r l y t h a t t h e

t r a i n i n g g i v e n t o s t u d e n t s from o u t s i d e Eas t A f r i c a must I n c l u d e t h e t r a i n i n g o f

i n s t r u c t o r s from t h o s e c o u n t r i e s a s w e l l .

Opera t ions

87 . The o p e r a t i o n s o f t h e p r o j e c t have s u f f e r e d from t h e d e l a y s by t h e Governments i n

s u b m i t t i n g t h e i r o f f i c i a l r e q u e s t t o UNDP f o r n e a r l y a y e a r . The second d r a f t p r o j e c t

document had i n d i c a t e d t h a t t h e p r o j e c t would be f u l l y o p e r a t i o n a l i n mid-1973 .

However, t h e e x e c u t i n g a g e n c y 1 s e a r l y s t a r t i n t h e appointment o f t h e p r o j e c t manager

and t h e u s e o f f e l l o w s h i p s f o r l o c a l p r o j e c t p e r s o n n e l , mainly t h e T r a i n i n g C o n t r o l l e r

and t h e P r i n c i p a l o f t h e C e n t r a l T r a i n i n g S c h o o l and t h e p r e l i m i n a r y programming o f

t h e p r o j e c t by t h e p r o j e c t manager are ach ievements worth n o t i n g .

8 8 . W i i l e t h e p r o j e c t i s s t i l l t o become f u l l y o p e r a t i o n a l , t h e f o u r t r a i n i n g s c h o o l s

are c o n t i n u i n g t h e e x i s t i n g I n d i v i d u a l t r a i n i n g programmes. The Eas t A f r i c a n P o s t s

and Telecommunicat ions Corporat ion has a l s o a v e r y l a r g e t r a i n i n g programme l o c a l l y

and through b i l a t e r a l agreements o v e r s e a s . In 1972 t h e Corporat ion r e p o r t e d over one

hundred s t u d e n t s i n t h e E a s t A f r i c a n I n s t i t u t i o n s o f h igher e d u c a t i o n and o v e r s e a s ,

ma in ly i n t h e UK, USA, A u s t r a l i a , Ganada, Japan and t h e Nether lands • This shou ld go a

l o n g way t o h e l p t h e t r a i n i n g i n s t i t u t i o n s which s h o u l d be a l l owed t h e f i r s t c a l l on

r e t u r n i n g t r a i n e d o f f i c e r s .

89o The I n s p e c t o r s saw a l o t o f b u i l d i n g a c t i v i t i e s a t t h e C e n t r a l T r a i n i n g S c h o o l ,

some o f which were t h e e x t e n s i o n o f t h e o l d b u i l d i n g s • "While t h e s e f a c i l i t i e s were

c o n s i d e r e d adequate f o r t r a i n i n g p u r p o s e s , t h e I n s p e c t o r s f e l t more c o u l d have been

done on t h e d e s i g n o f t h e Centre t o a v o i d waste o f r e s o u r c e s i n t h e near f u t u r e » The

p r e s e n t b u i l d i n g s compare unfavourab ly w i t h new i n s t i t u t i o n s coming up a l l over Eas t

A f r i c a ; t h e d i f f e r e n c e s w i l l be more apparent i f t h e Centre i s t o meet m u l t i n a t i o n a l

t r a i n i n g n e e d s which seem l i k e l y t o i n c r e a s e •

9 0 . The e a r l y use o f f e l l o w s h i p s has been commended and i f t h i s p r a c t i c e c o n t i n u e s

f o r a l l c o u n t e r p a r t s t a f f , t h e p r o j e c t w i l l have a good s t a r t . Bub t h i s hope i s n o t

now shared f u l l y by t h e e x e c u t i n g agency , s p e c i f i c a l l y on t h e p r o s p e c t s o f early-

r e l e a s e o f o f f i c e r s now s e r v i n g i n t h e t h r e e r e g i o n a l o f f i c e s , w h e r e t h e shor tage of

q u a l i f i e d o f f i c e r s i s b e i n g f e l t g r e a t l y w i t h t h e departure o f e x p a t r i a t e o f f i c e r s .

一 2 3 -

This i s j u s t one example o f t h e urgency i n g e t t i n g t h e p r o j e c t o f f t h e ground, A

permanent s o l u t i o n f o r the r e g i o n a l o f f i c e r s l i e s i n s h o r t - t e r m r e c r u i t m e n t from

o u t s i d e East A f r i c a and t h e e x p e c t a t i o n o f t h e i r own o f f i c e r s b e i n g t r a i n e d i n t h e

C e n t r a l Tra in ing S c h o o l .

9 1 . The d e l a y s i n p r o c e s s i n g t h e p r o j e c t document c o n s t i t u t e a t t h e moment the most

s e v e r e c o n s t r a i n t on t h e programme, which i n t u r n i n c r e a s e s t h e l e n g t h o f t h e p e r i o d

b e f o r e s e l f - r e l i a n c e can be a c h i e v e d i n t h e t r a i n i n g and t h e o p e r a t i o n s o f t h e East

A f r i c a n P o s t s and Telecommunicat ions Corporat ion i n p a r t n e r Sta tes . -

92• A common f a i l u r e i n p r o j e c t documents i s r e p e a t e d i n t h i s p r o j e c t by t h e absence

o f a s p e c i f i c or d e t a i l e d t r a i n i n g programme f o r t h e P r i n c i p a l o f t h e C e n t r a l Tra in ing

S c h o o l . Many i t e m s o f l e s s i n p o r t a n c e t o t h e s u c c e s s o f t h e p r o j e c t are g i v e n undue

prominence .

9 3 . The e s t a b l i s h m e n t o f a P r o j e c t S t e e r i n g Committee t o meet every s i x months i s a

sound p r o v i s i o n but t h e membership o f t h e Committee, l i k e t h a t o f o t h e r t r a i n i n g

programmes o f t h e Community, i s n o t l i k e l y t o be v e r y e f f e c t i v e . I t has a very narrow

base w i t h members coming a lmos t e n t i r e l y from t h e u s e r o r g a n i z a t i o n s i n t h e East

A f r i c a n P o s t s and T e l e c o n m u n i c a t i o n s Corporat ion . To be more e f f e c t i v e t h e r e shou ld

be a f o r m a l l y e s t a b l i s h e d Governing Body f o r each s c h o o l , w i t h as broad a base as

p o s s i b l e t o c o v e r a l l n a t i o n a l , r e g i o n a l , and p r o f e s s i o n a l i n t e r e s t s . The chairman

s h o u l d be a p u b l i c - s p i r i t e d Eas t A f r i c a n , n o t a s t a f f member o f t h e Community, but w i t h

r e l e v a n t e x p e r i e n c e i n t h e a d m i n i s t r a t i o n o f t r a i n i n g i n s t i t u t i o n s . The proposed

P r o j e c t S t e e r i n g Committee would then r e p o r t t o t h i s Governing Body. The l a t t e r 1 s

d u t i e s and r e s p o n s i b i l i t i e s would have t o be c l e a r l y d e f i n e d .

9До An i n t e r e s t i n g and welcome f e a t u r e i n t h e p r o j e c t programme i s t h e i n c l u s i o n i n

a l l purchase c o n t r a c t s o f t r a i n i n g equipment f o r t h e C e n t r a l Tra in ing Schoo l as w e l l

a s f o r t h e t h r e e R e g i o n a l T r a i n i n g S c h o o l s . At t h e r e q u e s t o f the IBRD, purchases

are t o be on a wor ld-wide t e n d e r b a s i s . This does add t o t h e problems o f t r a i n i n g t h e

I n s t r u c t o r s and u s e r s i n t h e f i e l d , i n t h e o p e r a t i o n s and care o f e v e r - g r o w i n g

v a r i e t i e f l o f new equipment. The s i t u a t i o n c o u l d be f u r t h e r improved i f the c o n t r a c t s

f o r new equipment i n c l u d e d t h e r e s p o n s i b i l i t y and t h e c o s t o f t r a i n i n g t h e I n s t r u c t o r s

a s w e l l .

9 5 . A f r u s t r a t i o n n o t e sometimes heard i n A f r i c a t h a t t h e United N a t i o n s f a m i l y o f

o r g a n i z a t i o n s i s n o t do ing enough t o f o s t e r r e g i o n a l c o - o p e r a t i o n cannot be e a s i l y

r e f u t e d when one f i n d s no ment ion i n t h e p r o j e c t document o f the t h r e e ne ighbour ing

c o u n t r i e s o f Burundi , Rwanda and Somal ia , which are a l r e a d y l i n k e d by a lmost a l l t h e

communication c h a n n e l s w i t h t h e East A f r i c a n Conniunity. The means o f c o - o p e r a t i o n and

^ 2Д -

p a r t i c i p a t i o n among a l l t h e c o u n t r i e s i n East A f r i c a c o u l d f o l l o w t h e s u c c e s s f u l

ехапц)1е s e t by t h e "ШО/UNDP-assisted p r o j e c t on t h e m e t e o r o l o g i c a l t r a i n i n g and

r e s e a r c h i n N a i r o b i . The a l t e r n a t i v e s are e x p e n s i v e , l o n g e r journeys t o f o r e i g n

t r a i n i n g s c h o o l s and d u p l i c a t i o n o f e f f o r t s and r e s o u r c e s on t h e p a r t o f UNDP

o p e r a t i o n s .

9 6 . In t h e absence o f c o - o r d i n a t e d and c o n p r e h e n s i v e manpower surveys f o r t h e v a r i o u s

i n s t i t u t i o n s and Departments o f t h e Eas t A f r i c a n Community, as w e l l a s t h e l a c k o f a

c l e a r Community p o l i c y and g u i d e l i n e s i n t h e v a r i o u s t r a i n i n g programmes, t h i s p r o j e c t

- t h e l a t e s t i n t h e t r a i n i n g f i e l d a s s i s t e d by t h e UNDP - w i l l miss t h e o p p o r t u n i t y t o

h e l p t h e Conmunity i n b r i n g i n g about a r a t i o n a l i z a t i o n o f t r a i n i n g schemes i n t h e

a l l i e d f i e l d such as e l e c t r i c a l e n g i n e e r i n g , which i s common t o b o t h t h e te lecommuni-

c a t i o n s s e r v i c e s and t o t h e r a d i o and b r o a d c a s t i n g s e r v i c e s . S i m i l a r l y , , t h e t r a i n i n g

i n t h e m a n a g e r i a l s k i l l s needed a t t h e s e n i o r l e v e l s f o r a l l t h e s e r v i c e s c o u l d be

o r g a n i z e d by one o f t h e t r a i n i n g i n s t i t u t i o n s .

9 7 . The I n s p e c t o r s f e e l t h a t t h i s p r o j e c t m e r i t s f u l l support from t h e i n t e r n a t i o n a l

community, b o t h through UNDP r e s o u r c e s and through t h e b i l a t e r a l r e s o u r c e s t h a t are so

much i n e v i d e n c e i n t h e t r a i n i n g programmes. The n e i g h b o u r i n g c o u n t r i e s must be

a s s u r e d o f t h e c o n t r i b u t i o n t h a t may be e x p e c t e d from t h i s p r o j e c t . The East A f r i c a n

P o s t s and Telecommunicat ions Corporat ion i s making a g r e a t c o n t r i b u t i o n t o t h e

deve lopment e f f o r t s i n Kenya, Uganda and Tanzania , i i i ç r o v i n g c o n d i t i o n s o f l i f e through

e f f i c i e n t communications s y s t e m s , which soon should be a b l e t o f u r t h e r i n c r e a s e

r e g i o n a l c o - o p e r a t i o n . The p r o j e c t has t h e making o f a s u c c e s s f u l and much needed

v e n t u r e .

U. P r o j e c t s RAF_68—109s The East A f r i c a n Rai lways and Harbours Tra in ing and Development P r o j e c t

9 8 . The Uni ted N a t i o n s O f f i c e o f T e c h n i c a l Go-operat ion i s t h e e x e c u t i n g agency f o r

t h e above p r o j e c t and t h e Government agency i s t h e East A f r i c a n Community w i t h ILO

and IBRD b e i n g c l o s e l y a s s o c i a t e d .

99* The purpose o f t h e p r o j e c t n±s t o a s s i s t t h e Governments through t h e Community,

t o i n c r e a s e t h e a d m i n i s t r a t i v e c a p a b i l i t y o f t h e o f f i c e r complement o f the East

A f r i c a n Rai lways and Harbours Corporat ions through a broad range o f a d m i n i s t r a t i o n and

management t r a i n i n g programmes. In a d d i t i o n , t h e p r o j e c t w i l l a s s i s t b o t h Corporat ions

by a d v i s i n g on m a t t e r s o f o r g a n i z a t i o n and management as w e l l as by h e l p i n g i n t h e

inçDlementation o f a programme o f a d m i n i s t r a t i v e improvement".

1 0 0 . The P l a n o f Operat ion r e c o r d e d t h a t UNDP c o n t r i b u t i o n t o t h e p r o j e c t was

US$1,Д09,900 and t h e Governments1 c o u n t e r p a r t c o n t r i b u t i o n US$1,Д46,357. This f i g u r e

一 2 5 -

has been inçiroved by c o n t r i b u t i o n s from b i l a t e r a l a i d s o u r c e s such as t h e f r e e grant

o f £ 3 1 5 , 0 0 0 by t h e Danish Government towards t h e c o s t o f b u i l d i n g t h e new c e n t r e a t

Arusha.

L e g a l S t a t u s

101 . The p r o j e c t was r e q u e s t e d by t h e Governments o f Kenya, Tanzania and Uganda a t

t h e end o f 1966 and approved by t h e UNDP Governing Counc i l i n June 1968 , But t h e

p r o j e c t document was n o t s i g n e d u n t i l 28 November 1969 . The d i f f e r e n t documents

v i ewed g i v e d i f f e r e n t d a t e s as t o when t h e p r o j e c t became o p e r a t i o n a l — some say

June I 9 6 8 when t h e p r o j e c t manager a r r i v e d ; o t h e r s January 1970 , t h e d a t e t h e p r o j e c t

was a u t h o r i z e d t o Ъесоше f u l l y o p e r a t i o n a l .

1 0 2 . The p r o j e c t was t o s e r v e p r i m a r i l y t h e n e e d s o f t h e Eas t A f r i c a n r a i l w a y s and

harbours which were f u n c t i o n i n g under one a u t h o r i t y . Two s e p a r a t e C o r p o r a t i o n s were

s e t up on 1 June 1969 . The d e l a y s i n g e t t i n g t h e p r o j e c t o f f t h e ground and t h e

changes i n t h e two Corpora t ions are g i v e n as t h e main c a u s e s t h a t r e s u l t e d i n a poor

p r o j e c t document and t h e consequent c o n f u s i o n t h a t a c c o n ç a n i e d t h e whole p r o j e c t . The

p r o j e c t document, however , d i d s t i p u l a t e t h a t t h e d u r a t i o n o f t h e p r o j e c t was f i v e

y e a r s and s i n c e r e c r u i t m e n t o f t h e i n t e r n a t i o n a l s t a f f - t h e p r o j e c t manager and two

o t h e r s - was e f f e c t e d i n 1968 , t h e p r o j e c t shou ld be coming t o i t s end i n June 1973 .

I t i s now o b v i o u s t h a t t h e document was n e v e r s e r i o u s l y s t u d i e d and n e c e s s a r y

amendments were n o t made t o f i t changing c o n d i t i o n s and t o i n d i c a t e t h e o b j e c t i v e s o f

t h e p r o j e c t c l e a r l y •

1 0 3 . Al though t h e p r o j e c t was i n t e n d e d t o meet t h e same n e e d s t h a t have been

e l a b o r a t e d i n t h e o t h e r UNDP-ass i s ted t r a i n i n g p r o j e c t s , t h e p r o j e c t document s t r e s s e d

p r i o r i t i e s as f o l l o w s :

(a) C o n s u l t a t i v e S e r v i c e s о The e s t a b l i s h m e n t o f new P e r s o n n e l Departments .

A management s e r v i c e o r g a n i z a t i o n f o r e a c h C o r p o r a t i o n �

(b) T r a i n i n g . - p r i m a r i l y f o r n a t i o n a l s o f Kenya, Tanzania and Uganda

- i n a d m i n i s t r a t i o n and modern management t e c h n i q u e s and p e r s o n n e l

a d m i n i s t r a t i o n； t o be c a r r i e d out a t a r e s i d e n t i a l S t a f f T r a i n i n g Centre .

( c ) A d m i n i s t r a t i v e Improvement Programme,

By t h e end o f t h e p r o j e c t i t i s e x p e c t e d t h a t t h e m a j o r i t y o f a d m i n i s t r a t i v e ,

p r o f e s s i o n a l and t e c h n i c a l p o s t s i n t h e Corporat ion w i l l be f i l l e d by n a t i o n a l s

o f t h e t h r e e Eas t A f r i c a n c o u n t r i e s .

一 2 6 -

Operat ions

10Д, The p r o j e c t has l a r g e l y o p e r a t e d i n t h e vague f a s h i o n s e t by t h e p r o j e c t

document and an enormous e f f o r t seems t o have gone i n t o t h e a c t u a l o r g a n i z a t i o n o f the

two C o r p o r a t i o n s , w i t h a f a i r amount o f a d v i s o r y s e r v i c e s b e i n g o f f e r e d t o t h e

Conmiunity S e c r e t a r i a t and t h e o t h e r I n s t i t u t i o n s o f t h e Community n o t s p e c i f i c a l l y

i n c l u d e d i n t h e p r o j e c t document, such as t h e Eas t A f r i c a n P o s t s and Telecommunicat ions

Corporat ion and t h e Cargo and Handling S e r v i c e s •

1 0 5 . I t appears t h a t t h e newes t C o r p o r a t i o n , t h e Eas t A f r i c a n Harbours Corporat ion ,

has b e n e f i t e d most from t h e s e r v i c e s p r o v i d e d by t h e p r o j e c t , h a v i n g s t a r t e d from

s c r a t c h . Some o t h e r s e r v i c e s o f t h e Community, such a s t h e Airways Corporat ion , do

n o t appear t o have r e c e i v e d much a t t e n t i o n even where t h i s was p o s s i b l e a t management

l e v e l ,

1 0 6 . The I n s p e c t o r s saw t h e new c e n t r e a t Arusha now n e a r i n g c o m p l e t i o n . I t w i l l

have a g r e a t i n f l u e n c e on t h i s programme. The absence o f a permanent c e n t r e has

c o n t r i b u t e d , t o a c e r t a i n e x t e n t , t o the f a i l u r e o f t h e p r o j e c t t o a c h i e v e t h e

i n t e n d e d g o a l s • The t r a i n i n g g i v e n so f a r has been done a t d i f f e r e n t p l a c e s i n the

p a r t n e r S t a t e s and t h i s has i n t u r n l e d t o l a c k o f c o h e s i o n i n t h e p r o j e c t . Some

o f f i c e r s appear t o have been permanent ly a t t a c h e d t o t h e s i t e o f each Corporat ion a t

Mombasa, Dar -e s -Sa laam and N a i r o b i ,

1 0 7 . The f i r s t r e v i e w m i s s i o n , conposed o f r e p r e s e n t a t i v e s o f t h e Uni ted N a t i o n s ,

ILO and UNDP was s e n t t o Eas t A f r i c a i n May 1972. The ir r e p o r t r a i s e d a number o f

i n ç o r t a n t i s s u e s i n t h e p r o j e c t document and p r o j e c t i i i p l e m e n t a t i o n , t h e most

s i g n i f i c a n t o f which a r e :

(a) d e l a y s i n d e c l a r i n g t h e p r o j e c t f u l l y o p e r a t i o n a l ;

(b) p r o j e c t manager hav ing t o r e p o r t t o s e v e r a l o f f i c i a l s i n s t e a d o f t h e two DG^s; —

(c ) c o n c e p t o f S t a f f T r a i n i n g Centre c l o s e r t o an e d u c a t i o n a l r a t h e r than management development i n s t i t u t e ;

(d) ambiguous p lanop;

(e ) s a t i s f a c t o r y p r o v i s i o n o f c o u n t e r p a r t s t a f f by Corporat ions concerned but c o n f í e t e l a c k o f c o u n t e r p a r t s f o r t h e Arusha Centre•

10B. The Report recommended t h a t p r i o r i t y f o r t h e remaining p a r t of t h e p r o j e c t

shou ld be g i v e n t o t h e needs o f t h e o r i g i n a l c l i e n t - East A f r i c a n Rai lways Corporat ion

and East A f r i c a n Harbours Corporat ion - and t o t h e management t r a i n i n g o f t h e c o u n t e r -

p a r t s t a f f f o r t h e Arusha I n s t i t u t i o n .

一 27 -

109 . The I n s p e c t o r s were amazed by t h e debate t h a t was s t a r t e d l a t e i n t h e l i f e o f

t h e p r o j e c t a s a r e s u l t of t h e r e v i e w m i s s i o n 1 s r e p o r t . The r o o t o f t h e t r o u b l e l i e s

i n t h e c a s u a l manner i n which t h e p r o j e c t document was c o n c e i v e d and opera ted .

110 . Superv i sory machinery cou ld have d e t e c t e d t h e problem i n t ime t o save waste i n

t h e r e s o u r c e s made a v a i l a b l e t o t h e p r o j e c t . The I n s p e c t o r s v i ew t h e r e s u l t s as a

g r e a t waste o f t h e o p p o r t u n i t y t o accompl i sh an o t h e r w i s e e x c e l l e n t p r o j e c t � There

w i l l be l o s s e s , due t o t h e proposed e x t e n s i o n of t h e p r o j e c t ' s l i f e , b o t h i n

f i n a n c i a l and human r e s o u r c e s .

Achievements and Shortcomings

111 . The p r o j e c t has s u f f e r e d from t h e s t a r t from l a c k o f c l e a r l y s t a t e d o b j e c t i v e s

t o be o b t a i n e d by t h e end o f f i v e y e a r s . The t r a i n i n g o f c o u n t e r p a r t s , which was i l l -

d e f i n e d i n t h e p r o j e c t document has n o t been a c h i e v e d .

112 . The t r a i n i n g o f f e r e d a t d i f f e r e n t l o c a t i o n s could have had g r e a t e r impact on

t h e whole Community i f i t had been c e n t r a l i z e d . There was ample o p p o r t u n i t y f o r

c e n t r a l i z a t i o n i n t h e area o f g e n e r a l management.

113 . On t h e c r e d i t s i d e , t h e work done t o b u i l d t h e new c e n t r e a t Arusha i s h i g h l y

commendable on t h e p a r t o f t h e P r o j e c t Manager and t h e o f f i c i a l s o f t h e Community

i n v o l v e d . The g e n e r a l inprovement i n a l l t h e i n s t i t u t i o n s t h a t r e q u e s t e d a s s i s t a n c e

from t h e p r o j e c t s s t a f f i n v a r i o u s k inds of surveys are p o s i t i v e c o n t r i b u t i o n s from

t h e p r o j e c t ,

11Д. The e x t e n s i o n now b e i n g r e q u e s t e d , t h e l e g a l ins trument f o r t h e new c e n t r e a t

Arusha and t h e e x i s t e n c e o f t r a i n e d p e r s o n n e l i n t h e two Corporat ions are some o f t h e

b r i g h t e r r e s u l t s t h a t may, i n t h e end, make t h e v e n t u r e worthwhi le .

5 . P r o j e c t s ; (a) RAF-66-081 The East A f r i c a n Schoo l o f A v i a t i o n 一 Na irobi

(b) RAF—70—1Л9 The East A f r i c a n F l y i n g Schoo l 一 S o r o t i

115• The two r e g i o n a l t r a i n i n g s c h o o l s i n a r e l a t e d f i e l d are t r e a t e d as one p r o j e c t

i n t h i s r e v i e w . The e x e c u t i n g agency i s t h e I n t e r n a t i o n a l C i v i l A v i a t i o n Organizat ion

(工GAO) and t h e Government agency i s t h e D i r e c t o r a t e of C i v i l A v i a t i o n , an I n s t i t u t i o n

o f t h e East A f r i c a n Gomiunity.

(a) The East A f r i c a n Schoo l o f A v i a t i o n 一 Na irob i

116 . The purpose o f t h i s p r o j e c t was t o a s s i s t the Governments of Kenya, Uganda and

Tanzania t o deve lop t h e e x i s t i n g t r a i n i n g f a c i l i t i e s f o r t e c h n i c a l p e r s o n n e l i n c i v i l

a v i a t i o n ground s e r v i c e s i n t o a f u n c t i o n a l l y o r g a n i z e d , p r o p e r l y equipped and w e l l -

s t a f f e d c e n t r e of c i v i l a v i a t i o n t r a i n i n g , capable of m a i n t a i n i n g i t s p r o f e s s i o n a l

and e d u c a t i o n a l competence a f t e r t h e withdrawal o f UN a s s i s t a n c e .

一 2 8 -

117• T h i s 5-2 y e a r p r o j e c t was supported by a UNDP c o n t r i b u t i o n amounting t o

US$888,545 and Eas t A f r i c a n Governments1 c o u n t e r p a r t c o n t r i b u t i o n of U S $ 1 , 9 � 9 , 1 0 0 ,

making t h e t o t a l c o s t o f around U S $ 2 , 8 3 7 , 6 4 5 .

L e g a l S t a t u s

1 1 8 . The p r o j e c t r e q u e s t t o o k a l o n g t ime t o be p r o c e s s e d 一 p r e s e n t e d i n 1962 ,

UNDP approved i t i n December 1966 , but t h e p lanop was n o t s i g n e d u n t i l A p r i l 1967 .

S e v e r a l amendments were made t o i t t o meet growing t r a i n i n g needs i n t h e Conmiunity.

Operat ion

119• The p r o j e c t has made a d e f i n i t e c o n t r i b u t i o n t o t h e GoTnmunity and has made i t

p o s s i b l e f o r t h e Governments t o t r a i n l o c a l l y t h e i r n a t i o n a l s i n t h e f o l l o w i n g f i e l d s

of c i v i l a v i a t i o n :

Air T r a f f i c C o n t r o l

Comiminication Operat ions

Radio maintenance e n g i n e e r i n g

1 2 0 . The p r o j e c t * s main o b j e c t i v e was t h e t r a i n i n g o f a n a t i o n a l P r i n c i p a l and

n a t i o n a l i n s t r u c t o r s and o t h e r s t a f f f o r t h e c o n t i n u e d o p e r a t i o n o f t h e S c h o o l , In

a d d i t i o n , t h e development o f l a b o r a t o r i e s and t e a c h i n g m a t e r i a l s and c o n s o l i d a t e d

c o u r s e m a t e r i a l were undertaken .

1 2 1 . In a t e r m i n a l r e p o r t i s s u e d i n August 1972 , IGAO made a f a i r a s s e s s m e n t of t h e

p r o j e c t performance and s u c c e s s . The I n s p e c t o r s 1 v i s i t t o t h e S c h o o l conf irmed most

o f t h e above a s se s sment as r e g a r d s :

(a) poor working c o n d i t i o n s and accommodation i n old' U o r l d ¥ а г I I s t o r a g e

b u i l d i n g s which are t e r r i b l y crowded;

(b) was tage o f t r a i n e d manpower dur ing the t r a i n i n g p e r i o d and a f t e r g r a d u a t i o n ,

amounting t o some 50% i n t h e c a s e o f Air T r a f f i c C o n t r o l l e r s . The I n s p e c t o r s

f e l t t h a t such a c o n t i n u i n g s i t u a t i o n would j u s t i f y a thorough i n v e s t i g a t i o n t o

ensure t h a t t h e t r a i n i n g g i v e n a t t h e s c h o o l i s n o t was ted .

1 2 2 . Vhat was more d i s t u r b i n g dur ing t h e I n s p e c t o r s 1 v i s i t was t h e low morale t h a t

was apparent i n t h e s c h o o l , which was t h e n f i r m l y under Eas t A f r i c a n n a t i o n a l s • F i r s t

c r e d i t was g i v e n a l l round on t h e q u a l i t y o f t r a i n i n g r e c e i v e d by t h e n a t i o n a l

I n s t r u c t o r s . They were i n d e e d proud o f t h e i r t r a i n i n g and had many p r o g r e s s i v e i d e a s

f o r i n p r o v i n g t h e i r s c h o o l . The Department1 s p r a c t i c e o f t r a n s f e r r i n g I n s t r u c t o r s t o

o t h e r a d m i n i s t r a t i o n j o b s had a d e m o r a l i z i n g e f f e c t on t h e s t a f f . The P r i n c i p a l who

had been working as a Co-Manager f o r n e a r l y f o u r y e a r s , b o t h dur ing t h e p r o j e c t and

a f t e r , had been on an a c t i n g b a s i s . Conf irmat ion and promotion o f t h e P r i n c i p a l and

一 2 9 -

t h e o t h e r i n s t r u c t o r s , and agreement w i t h t h e i n s t r u c t o r s t o s erve a t the s c h o o l f o r a

r e a s o n a b l e l e n g t h o f t ime w i l l , i n the I n s p e c t o r s 1 v i e w , enhance t h e p o s i t i o n o f the

s t a f f and h e l p t h e Community t o d e r i v e maximum b e n e f i t from t h e p r o j e c t . The

appointment o f a Deputy P r i n c i p a l from among t h e t e c h n i c a l d i v i s i o n s as recommended by

t h e 工GAO Terminal Report , would a l s o make an e f f e c t i v e c o n t r i b u t i o n t o t h e t o t a l

w e l f a r e o f t h e school»

(b) The Eas t A f r i c a n F l y i n g Schoo l a t S o r o t i

123 . While t h e N a i r o b i Centre was d e s i g n e d t o t r a i n ground t e c h n i c a l s t a f f o n l y , the

S o r o t i Centre 1 s aim i s t o t r a i n c i v i l p i l o t s . According t o t h e P r o j e c t document t h e

o b j e c t i v e s o f t h i s p r o j e c t are g i v e n as f o l l o w s :

"to a s s i s t t h e Community i n e s t a b l i s h i n g a S c h o o l manned by l o c a l p e r s o n n e l , f o r t h e i n i t i a l t r a i n i n g o f c i v i l p i l o t s and f o r t h e t r a i n i n g o f a i r c r a f t maintenance mechanics a t S o r o t i , Uganda

12Д. The s c h o o l i s e x p e c t e d t o supply a s t e a d y f l o w o f :

(a) p i l o t s t r a i n e d t o a l e v e l mid-way between t h e P r i v a t e and Commercial

P i l o t L i c e n c e s , who would subsequent ly c o n f í e t e t h e i r t r a i n i n g t o o b t a i n t h e i r

Commercial P i l o t L i c e n c e w i t h Instrument Rat ing a t a f l y i n g s c h o o l abroad;

(b) a i r c r a f t maintenance mechanics .

125 . The u l t i m a t e o b j e c t i v e o f t h e Community i s t o e s t a b l i s h a s c h o o l capable o f

t r a i n i n g p i l o t s t o t h e l e v e l o f Commercial P i l o t L icence w i t h Instrument Rat ing . This

p r o j e c t i s t h e r e f o r e a Phase I o f t h e t r a i n i n g programme env i saged by t h e Governments

o f Kenya, Tanzania and Uganda.

126 . The f i n a n c i a l c o n t r i b u t i o n t o be made by t h e UNDP i n t h e Planop i s

US$2,515 ,700 and t h e Government c o n t r i b u t i o n i s (EA) S h s . 3 2 , 8 7 1 , 8 7 5 t o cover t h e f i v e

y e a r s o f t h e P r o j e c t o p e r a t i o n s , which i s rough ly t h e e q u i v a l e n t o f US$4 ,700 ,000 .

This makes t h e t o t a l p r o j e c t c o s t s US$7.2 m i l l i o n .

Legal S t a t u s

127. The r e q u e s t f o r t h i s p r o j e c t was made i n January 1968 and approved by t h e UNDP

Governing Counci l i n January 1970. The Planop was s i g n e d i n June 1972, e x a c t l y two

and a h a l f y e a r s l a t e r . A u t h o r i z a t i o n t o s t a r t o p e r a t i o n s was dated A p r i l 1970.

128 . Unl ike t h e East A f r i c a n School o f A v i a t i o n i n Na irob i - t h e S o r o t i S c h o o l ' s

t r a i n i n g programme i s s u b - c o n t r a c t e d t o a Fry ing Schoo l i n P e r t h , S c o t l a n d through an

Agreement s i g n e d between 工GAO and Air S e r v i c e T r a i n i n g , Airwork S e r v i c e s L t d ” whose

s e r v i c e s were r e q u e s t e d by 工GAO "to a s s i s t i n t h e i n i t i a l t r a i n i n g of t h e East A f r i c a n

s t u d e n t p i l o t s ; i n t h e t r a i n i n g o f a i r c r a f t maintenace mechanics , counterpar t and o ther

n a t i o n a l s t a f f ; and i n t h e maintenance and s e r v i c i n g o f t r a i n i n g a i r c r a f t , a l l a t S o r c t i . f

一 3 0 -

Operat ions

129 . C o n s i d e r a b l e d e l a y s i n p r o c e s s i n g t h e p r o j e c t documents and f u r t h e r d e l a y s i n

t h e b u i l d i n g programmes have had t h e e f f e c t o f r e t a r d i n g the p r o g r e s s o f t h i s p r o j e c t .

The new p i t e f o r t h e s c h o o l a t S o r o t i was d e c i d e d upon by the East A f r i c a n Community,

i n accordance w i t h t h e i r p l a n f o r d i s t r i b u t i n g and s i t i n g t h e Coinmunity i n s t i t u t i o n s

f a i r l y among p a r t n e r S t a t e s . The s c h o o l f i n a l l y opened i n September i n s t e a d of

May I 9 7 I w i t h some f i n a n c i a l consequences f o r t h e c o n t r a c t o r s , who had r e c r u i t e d the

t r a i n i n g s t a f f s e v e r a l months e a r l i e r .

1 3 0 . The e f f e c t s o f t h e i n t e r n a l c o n d i t i o n s dur ing t h e d i f f i c u l t p e r i o d f o l l o w i n g

changes i n Government were t r y i n g t o t h e s c h o o l , but f o r t u n a t e l y t h e d i f f i c u l t p e r i o d

i s now over and t h e programme o f t r a i n i n g a t S o r o t i shou ld b e n e f i t from t h e new s p i r i t

o f c o - o p e r a t i o n t h a t now p r e v a i l s i n a l l p a r t n e r S t a t e s •

( с ) P r o j e c t 1 s ach ievements and shortcomings

131 . The I n s p e c t o r s were i n p r e s s e d by t h e t r a i n i n g t h a t has been g i v e n i n the two

s c h o o l s and t h e d e d i c a t i o n and c l o s e i n t e r e s t i n t h e p r o j e c t ma in ta ined by t h e

e x e c u t i n g agency . They r e a d o f t h e Community* & e a r l i e r e f f o r t s t o t r a i n A f r i c a n

p i l o t s and t e c h n i c a l s t a f f , b o t h l o c a l l y and o v e r s e a s and t h e f r u s t r a t i o n s t h a t

f o l l o w e d f a i l u r e s i n t h e i r e f f o r t s . Their f i r s t e f f o r t i n 196Д w i t h 7 s t u d e n t p i l o t s

i n t h e U n i t e d Kingdom produced o n l y U p i l o t s a f t e r two and a h a l f y e a r s • The second

group f o l l o w e d i n 1965 w i t h 15 s t u d e n t p i l o t s and i n 1968 t h e output from b o t h schemes

was 8 p i l o t s and 10 t r a i n e e s s t i l l o v e r s e a s .

1 3 2 . The I n s p e c t o r s c o u l d n o t unders tand t h e r e a s o n s f o r making two s e p a r a t e p r o j e c t s

f o r t h e c i v i l a v i a t i o n t r a i n i n g a t two s e p a r a t e s i t e s 300 m i l e s a p a r t . Exper ience

e l s e w h e r e shows i t i s p o s s i b l e t o have a comprehensive u n i f i e d programme o f t r a i n i n g

i n c i v i l a v i a t i o n under one r o o f . The example o f t h e Lusaka C i v i l A v i a t i o n Schoo l i n

Zambia which t h e I n s p e c t o r s v i s i t e d p r o v e s t h a t t h e e x e c u t i n g agency c o u l d p l a n and

o p e r a t e a s i m i l a r t r a i n i n g i n s t i t u t i o n a t S o r o t i , a lmost h a l v i n g t h e overhead c o s t s i n

a d m i n i s t r a t i o n and I n s t r u c t o r a s c o s t s i n a l l i e d f i e l d s .

133 . There i s a l s o t h e q u e s t i o n o f t h e r e s p o n s i b i l i t y f o r t h e t r a i n i n g o f p i l o t s and

a i r c r a f t mechan ics , now e n t i r e l y i n t h e Department o f C i v i l A v i a t i o n , The main user of

t h e p r o d u c t s o f t h i s s c h o o l i s t h e East A f r i c a n Airways Corporat ion , which accord ing t o

t h e Planop has a nominal r e p r e s e n t a t i o n on t h e C o - o r d i n a t i n g / A d v i s o r y Committee. As

Corpora t ions are e x p e c t e d t o o p e r a t e on some commercial l i n e s , i t would appear t o t h e

I n s p e c t o r s t h a t t h e Corporat ion should have more commitment t o t h e t r a i n i n g s c h o o l and

a c c e p t a p r o p o r t i o n a t e share i n i t s f i n a n c i n g .

一 3 1 -

13Д. This invo lvement would f o r i n s t a n c e h e l p t h e s c h o o l i n b e n e f i t i n g from t h e

Corammity p o l i c y o f i n c l u d i n g i n t h e i r purchase c o n t r a c t s t h e e lement o f t r a i n i n g

equ ipment� The Eas t A f r i c a n p u r c h a s e s are n o t modest and w i t h c a r e f u l programming

c o u l d i n c l u d e an e l ement o f t r a i n i n g f o r each new s e t o f a i r c r a f t purchased . Thi s i s

a world-wide p r a c t i c e and ample e v i d e n c e o f t h e a c c e p t a n c e o f t h i s p r a c t i c e i n t h e

p a r t n e r S t a t e s , p a r t i c u l a r l y i n t h e i r Air F o r c e s , which have done a f a r b e t t e r job i n

t r a i n i n g l o c a l p i l o t s than t h e s e two p r o j e c t s . The I n s p e c t o r s do no t f e e l i n t h i s

r e s p e c t t h a t f u l l u s e i s b e i n g made o f a l l t h e r e s o u r c e s a v a i l a b l e t o speed up t h i s

t r a i n i n g programme,

1 3 5 . I t i s g r a t i f y i n g t o n o t e a r e c e n t move i n t h e Community t o s tudy and c o -

o r d i n a t e v a r i o u s s e c t o r a l e f f o r t s i n t r a i n i n g . The I n s p e c t o r s f e e l t h a t t h i s i s

another o p p o r t u n i t y f o r t h e U n i t e d N a t i o n s f a m i l y t o h e l p s e t up and o p e r a t e an

a p p r o p r i a t e p o l i c y p l a n n i n g u n i t f o r t h e Community as soon as t h e Community i s ready

f o r h e l p .

1 3 6 . The u s e o f s u b - c o n t r a c t s i n t h e e x e c u t i o n o f ШШР-ass i s ted p r o j e c t s o f

t e c h n i c a l a s s i s t a n c e has been debated i n t h e d e v e l o p i n g c o u n t r i e s , t h e main a t t r a c t i o n

b e i n g t h e p o s s i b i l i t y o f c o n t i n u i n g c o n t a c t between t h e i n s t i t u t i o n and t h e

c o n t r a c t o r . The S o r o t i s c h o o l e x p e r i e n c e should be s t u d i e d t o f i n d out how f a r t h i s

p r a c t i c e can be o f use i n t h e d e v e l o p i n g c o u n t r i e s , p a r t i c u l a r l y i n p e r i o d s o f

i n t e r n a l and i n t e r n a t i o n a l s t r e s s •

Chapter IV

A REVISED CONCEPT OF THE UNDP TRAINING PROGRAMMES IN THE LEAST DEVELOPED

COUNTRIES

137 . As s t a t e d b e f o r e , t h e f i e l d i n s p e c t i o n covered o n l y UNDP-ass isted r e g i o n a l

t r a i n i n g programmes i n t h e Eas t A f r i c a n Community, but t h e i r e v a l u a t i o n l e a d s t o a

g e n e r a l d i s c u s s i o n on t h e need o f a r e v i s e d concept o f t h e UNDP t r a i n i n g programmes i n

t h e l e a s t d e v e l o p e d c o u n t r i e s •

138 . In t h e p a s t f ew y e a r s , Member S t a t e s have i n c r e a s i n g l y p l a c e d e n ç h a s i s on the

d i s t i n c t i o n between d e v e l o p i n g c o u n t r i e s and t h e l e a s t deve loped c o u n t r i e s , and have

asked f o r p r i o r i t y t rea tment f o r t h e l a t t e r . T h e o r e t i c a l l y a t l e a s t , i t i s p o s s i b l e

t o e n v i s a g e t h r e e d i f f e r e n t c a t e g o r i e s of t r a i n i n g progrannness (a) i n t h e l e a s t

deve loped c o u n t r i e s , (b) i n d e v e l o p i n g c o u n t r i e s a t a h igher l e v e l o f development , and

( c ) i n a r e g i o n a l group or community of S t a t e s .

1 3 9 . The problems f a c e d by t h e l e a s t deve loped c o u n t r i e s are no t t h e same as t h o s e

o f o t h e r d e v e l o p i n g c o u n t r i e s ; t h e y were c l e a r l y i n d i c a t e d i n many General Assembly,

一 3 2 -

ECOSOC and UNCTAD 工工工 r e s o l u t i o n s . The urgency , t h e q u a l i t y and t h e q u a n t i t y of t h e

t r a i n i n g o f t r a i n e r s r e q u i r e d f o r t h e l e a s t d e v e l o p e d c o u n t r i e s are un ique , and unique

methods o f approach are c a l l e d f o r and, s p e c i f i c a l l y , very c l o s e s u p e r v i s i o n i s

needed .

1Д0. The a n a l y s i s o f UNDP t r a i n i n g programmes i n East A f r i c a shows t h a t t h e r e has

n o t been a c l e a r and d e f i n i t e i d e a o f how t o h e l p t h e l e a s t d e v e l o p e d c o u n t r i e s w i t h

t h e i r most important n e e d s . B e s i d e s " s o p h i s t i c a t e d " p r o j e c t s whose v a l u e c o u l d be

d i s c u s s e d even i n t h e most d e v e l o p e d o f the d e v e l o p i n g c o u n t r i e s , t h e r e are o t h e r s

r e l a t e d t o e lementary t r a i n i n g t h a t c o u l d be undertaken by t h e i r own Governments w i t h

l i t t l e a s s i s t a n c e from o u t s i d e .

1Д1. With r e f e r e n c e t o t h e s p e c i f i c needs o f t h e p a r t n e r S t a t e s o f t h e Eas t A f r i c a n

Community, i t shou ld be borne i n mind t h a t t h e s e c o u n t r i e s d i d no t e x i s t as p o l i t i c a l

e n t i t i e s more than a decade a g o . They have , however, c a r r i e d through enormous

deve lopment programmes i n t h a t p e r i o d . The p r o g r e s s made has been remarkable . There

i s no doubt on t h a t , but t h e a d m i n i s t r a t i o n o f a new country needs l a r g e and

s p e c i a l i z e d s e c t o r s o f human r e s o u r c e s . The rep lacement o f t h e former a d m i n i s t r a t i o n

by a n a t i o n a l one was an a b s o l u t e i m p e r a t i v e , but t h e rep lacement r e q u i r e d an

i n ç ) r e s s i v e amount o f human r e s o u r c e s , q u a n t i t a t i v e l y and q u a l i t a t i v e l y s p e a k i n g .

*1�2. The I n s p e c t o r s b e l i e v e UNDP should g i v e s e r i o u s c o n s i d e r a t i o n i n g i v i n g

p r i o r i t y t o t h e problems o f t h e l e a s t deve loped c o u n t r i e s t o t h e t r a i n i n g o f p u b l i c

a d m i n i s t r a t i o n o f f i c e r s . I t i s t h e Government, through i t s a d m i n i s t r a t i v e machinery,

which i s go ing t o implement t h e d e c i s i o n s taken a c c o r d i n g t o t h e s o c i o - e c o n o m i c

s t r u c t u r e of t h e c o u n t r y . To t h i s end t h e I n s p e c t o r s s e e a g r e a t f u t u r e f o r t h e MC

Management I n s t i t u t e and a s i m i l a r i n s t i t u t i o n i n each country . I t i s always

n e c e s s a r y t o remember t h a t t h e t r a i n i n g i n s t i t u t i o n r e f e r r e d t o t r a i n s p e o p l e t o

t r a i n o t h e r p e o p l e . Th i s c r i t e r i o n , a l r e a d y i n u s e i n ШШР, shou ld be adhered t o v e r y

s t r i c t l y ,

1ДЗ• 工"t i s very d i f f i c u l t a l s o (and many t i m e s u s e l e s s ) t o t r y t o h e l p c o u n t r i e s i f

t h e r e i s l a c k o f t h e fundamental i n f o r m a t i o n needed f o r r a t i o n a l development p l a n n i n g .

T h i s fundamental i n f o r m a t i o n should i n c l u d e , p r i n c i p a l l y , t h e i n v e n t o r y o f t h e

c o u n t r y ' s human r e s o u r c e s , t h e i n v e n t o r y o f i t s n a t u r a l r e s o u r c e s and t h e i n v e n t o r y o f

i t s i n s t i t u t i o n s and t h e i r methods o f o p e r a t i o n . Development p l a n n i n g based on

i n c o m p l e t e data c o u l d s o l v e t h e "urgency" o f immediate needs ; but i t c o u l d never g i v e ,

i n t h e o p i n i o n o f t h e I n s p e c t o r s , a sound b a s i s f o r r e a l and l a s t i n g d e v e l o p m e n t �

一 3 3 -

14Л. Many o f t h e d e v e l o p i n g c o u n t r i e s are n o t u s i n g , i n t h e t e c h n i c a l or s c i e n t i f i c

way, t h e i r n a t u r a l r e s o u r c e s because t h e y do n o t have enough i n f o r m a t i o n about them.

In some c a s e s t h e y are i n v o l u n t a r i l y d e s t r o y i n g v e r y important p o t e n t i a l s o u r c e s o f

income. The s i t u a t i o n w i t h r e f e r e n c e t o human r e s o u r c e s - t h e most v a l u a b l e o f a l l o f

them - i s a lmost t h e same i n many c o u n t r i e s . UNDP shou ld use t h e main bulk o f i t s

f u n d s i n h e l p i n g t h e c o u n t r i e s t o have 11 good i n v e n t o r i e s1 1 . S c a t t e r e d p r o j e c t s

c o v e r i n g a wide range o f t e c h n i c a l f i e l d s - some o f them o b j e c t e d t o by t h e same

c o u n t r i e s - are o f no r e a l h e l p ,

1Д5. The s p e c i a l i z e d a g e n c i e s shou ld a l s o s e r i o u s l y c o n s i d e r t h i s q u e s t i o n . Not a l l

o f them - t o t h e knowledge o f t h e I n s p e c t o r s 一 have a c l e a r i d e a o f how t h e y c o u l d

b e s t h e l p t h e l e a s t deve loped c o u n t r i e s • Going through t h e v a r i o u s programmes t h e y are

e x e c u t i n g i n some c o u n t r i e s i s enough t o show t h e l a c k o f a development p o l i c y .

14J6. The I n s p e c t o r s t o o k s p e c i a l i n t e r e s t i n t h e c u r r e n t p r a c t i c e s , w i t h most

e x e c u t i n g a g e n c i e s , o f g i v i n g o n l y a f ew days b r i e f i n g t o t h e i r p r o j e c t managers and

found an i n t e r e s t i n g r e s p o n s e from one p r o j e c t manager met i n t h e f i e l d , whose

c o n t r i b u t i o n t o t h i s s tudy i s i n Annex I . The c o u n t r i e s o f Eas t A f r i c a have l o n g

e x p e r i e n c e i n t h e r e c r u i t m e n t , t r a i n i n g and b r i e f i n g of e x p a t r i a t e o f f i c e r s from t h e

c o l o n i a l p e r i o d . The I n s p e c t o r s have examined a number o f documents on t h i s p o i n t ,

i n c l u d i n g t h e mass ive UNDP Manual and UNDP1s p r a c t i c e i n r e l a t i o n t o i t s f i e l d

o f f i c e r s . These run a s f o l l o w s :

S t a f f T r a i n i n g UNDP

I n d u c t i o n , b r i e f i n g and o r i e n t a t i o n s i n c e 1971 .

A l l new p r o f e s s i o n a l and h i g h e r c a t e g o r y s t a f f a t t h e Headquarters now a t t e n d a

three-»day o r i e n t a t i o n course o r g a n i z e d by UNDP. This o r i e n t a t i o n cou rse aims a t

a c q u a i n t i n g new s t a f f members w i t h t h e o r g a n i z a t i o n , i t s p u r p o s e s , s t r u c t u r e , p o l i c i e s

and p r a c t i c e s , i n c l u d i n g s u b s t a n t i v e o p e r a t i o n s o f UNDP.

R e s i d e n t r e p r e s e n t a t i v e s , on appointment and r e a s s i g n m e n t , normal ly v i s i t UNDP

Headquarters f o r b r i e f i n g p u r p o s e s . A d d i t i o n a l l y , major q u e s t i o n s o f programme and

a d m i n i s t r a t i v e p o l i c i e s are d i s c u s s e d dur ing t h e p e r i o d i c r e g i o n a l m e e t i n g s o f

r e s i d e n t r e p r e s e n t a t i v e s .

1Д7. The I n s p e c t o r s are conv inced t h a t t h e UN p r a c t i c e i n b r i e f i n g i s l e s s

deve loped than t h e p r a c t i c e used under b i l a t e r a l agreements i n East A f r i c a • UNDP

should t a k e a c l o s e r l o o k a t t h e v a r i o u s p r a c t i c e s , such as t h e b r i e f i n g g i v e n a t t h e

Centre f o r Overseas B r i e f i n g a t Farnham, Surrey , i n England and i n some c e n t r e s i n

East A f r i c a � B r i e f i n g c o u r s e s f o r t h e p r o j e c t manager should be t a i l o r e d t o t h e needs

o f each p r o j e c t .

л

1Д8. The most i n p o r t a n t c o n s t r a i n t i n t h e o p e r a t i o n s o f t r a i n i n g p r o j e c t s i n t h e

l e a s t d e v e l o p e d c o u n t r i e s i s t h e l a c k o f c o u n t e r p a r t p e r s o n n e l , e i t h e r through c o n f í e t e

absence o f q u a l i f i e d n a t i o n a l s or thro.ugh t h e apparent relue七ancy o f t h e Departmental

heads o f s e r v i c e s t o r e l e a s e an i n p o r t a n t o f f i c e r who i s e s s e n t i a l i n t h e whole

a d m i n i s t r a t i v e machinery, e s p e c i a l l y when t h e r e q u e s t i s mere ly f o r t r a i n i n g r a t h e r

than o p e r a t i o n a l t a s k s , and w i t h t h e knowledge t h a t t h e t e a c h i n g l o a d o f t h e e x p e r t

i s o n l y a f e w hours per week, t h e r e s t o f h i s t ime b e i n g devoted t o r e s e a r c h and

o r g a n i z a t i o n o f t h e c o u r s e •

1Д90 In t h e I n s p e c t o r s 1 v i e w , t h e s o l u t i o n t o t h e problem i ô t o a c c e p t t h e e x i s t i n g

s i t u a t i o n and t o a s s i s t f i r s t t h e Department by t h e p r o v i s i o n o f a rep lacement f o r t h e

n a t i o n a l who i s g o i n g t o be a c o u n t e r p a r t t o t h e p r o j e c t e x p e r t , and by t r a i n i n g a

second and a t h i r d n a t i o n a l f o r t h e o r i g i n a l j o b � In o t h e r words, t o o b t a i n an

I n s t r u c t o r f o r a t r a i n i n g I n s t i t u t i o n , UNDP shou ld c o n s i d e r t h e p o s s i b i l i t y o f

f i n a n c i n g n o t on ly one n a t i o n a l but a t l e a s t t h r e e , and no t o n l y one e x p e r t but two or

more, so t h a t t h e Government does n o t s u f f e r by a c c e p t i n g and c o - o p e r a t i n g i n t h e UNDP

a s s i s t a n c e . In t h e end, t h e c o s t o f t h e scheme w i l l be l e s s a l l round than t h a t of t h e

p r e s e n t p r a c t i c e o f w a i t i n g i n d e f i n i t e l y f o r a n a t i o n a l c o u n t e r p a r t .

150 , R e g i o n a l c o - o p e r a t i o n has r e c e i v e d o n l y l i p - s e r v i c e . The I n s p e c t o r s c o u l d no t

f i n d any UNDP g u i d e - l i n e s f o r member s t a t e s when c o - o p e r a t i n g i n r e g i o n a l p r o j e c t s ,

even f o r s h a r i n g e x c e l l e n t t r a i n i n g f a c i l i t i e s t h a t a l r e a d y e x i s t i n Eas t A f r i c a . The

UNDP c u r r e n t approach t o c o - o p e r a t i o n through t h e j o i n t e f f o r t s o f t h e UNDP Bureau f o r

A f r i c a and t h o s e o f ECA w i l l h e l p r e g i o n a l needs on a broad b a s e �

1 5 1 . Encouragement o f r e g i o n a l s e c t o r a l c o n f e r e n c e s , such as t h e l a t e s t one

conducted under t h e a u s p i c e s o f t h e I n t e r n a t i o n a l Telecommunicat ion Union a t Ndola i n

Zambia f o r t r a i n e r s i n t h e t e l e c o m m u n i c a t i o n f i e l d , 9 - 1 3 J u l y 1973， i s recommended.

1 5 2 � T h i s m e e t i n g was a t t e n d e d by r e p r e s e n t a t i v e s from Malawi, E t h i o p i a , Kenya,

Tanzania and Uganda, L e s o t h o , Swaz i land and Zambia. The ITU o f f i c i a l s and c o n s u l t a n t s

were i n a t t e n d a n c e . The r e s u l t s o f t h e m e e t i n g were s i g n i f i c a n t i n t h e f o r m u l a t i o n

o f t r a i n i n g p o l i c i e s f o r t h e whole r e g i o n .

1 5 3 . In format ion on s u c c e s s f u l r e g i o n a l or n a t i o n a l t r a i n i n g i n s t i t u t i o n s i s l a c k i n g

i n n e i g h b o u r i n g c o u n t r i e s . In terchange o f r e p o r t s and programmes through UNDP country

o f f i c e s shou ld be e n c o u r a g e d � In t h i s c o n n e c t i o n t h e I n s p e c t o r s took t h e l i b e r t y i n

t h e i r f i e l d i n s p e c t i o n t o b r i n g t o t h e a t t e n t i o n o f t h e UNDP Admin i s t ra tor a p i l o t

p r o j e c t on F u n c t i o n a l L i t e r a c y f o r which UNESCO i s the e x e c u t i n g agency and which has

been a c c l a i m e d by t h e n a t i o n a l government and i n t e r n a t i o n a l e x p e r t a g e n c i e s . The

r e s p o n s e from UNDP Headquarters t o t h i s i n f o r m a t i o n has not been p o s i t i v e . The

一 3 5 -

I n s p e c t o r s can s e e no t e c h n i c a l problem i n l e t t i n g a l l t h e ne ighbour ing c o u n t r i e s v i e w

t h e r e s u l t s o f t h e p r o j e c t . A f t e r a l l , i t was a p i l o t p r o j e c t . Each member s t a t e

w i l l have t h e r i g h t t o judge f o r i t s e l f t h e r e s u l t s o f t h i s , p r o j e c t and d e c i d e oñ t h e

f o l l o w - u p , b i l a t e r a l l y or through t h e country I n d i c a t i v e P lanning F i g u r e . Assurances

o f t h e h o s t government have welcomed c o - o p e r a t i o n w i t h i t s ne ighbours i n e v a l u a t i n g

t h e r e s u l t s o f t h e p r o j e c t , but through each c o u n t r y ' s own I n d i c a t i v e P lann ing F igure

or through r e g i o n a l a l l o c a t i o n s or f e l l o w s h i p s .

15Д. UNDP a d m i n i s t r a t i o n of i t s programme i n t h e Eas t A f r i c a n Community has been

inçiroved by t h e appointment o f a programme o f f i c e r a t Arusha, t h e Headquarters o f the

Eas t A f r i c a n Community. But t h e I n s p e c t o r s f e e l t h a t t h e s i z e o f t h e t o t a l UNDP

programme f o r t h e Commmiity - n e a r l y сonç)arable t o t h a t o f one p a r t n e r S t a t e -

d e s e r v e s a s e p a r a t e o f f i c e w i t h s u f f i c i e n t r e s o u r c e s and power t o do f o r t h e Community

what a UNDP country o f f i c e does f o r e a c h Member S t a t e .

155 . The Community a d m i n i s t r a t i o n i s much younger than any of t h e p a r t n e r S t a t e s i n

most o f i t s o p e r a t i o n s , i n p l a n n i n g and c o - o r d i n a t i o n o f e f f o r t s . The c o - o r d i n a t i n g

r o l e i n t h e economic l i f e o f the p a r t n e r S t a t e s cannot be a t t a i n e d w i t h o u t f u l l

a s s i s t a n c e from t h e United N a t i o n s f a m i l y t o s t r e n g t h e n the Community a d m i n i s t r a t i o n �

- з б -

CONCLUSIONS

156 . The UNDP r e g i o n a l t r a i n i n g programmes i n Eas t A f r i c a c o u l d , i n t h e o p i n i o n o f

t h e I n s p e c t o r s , be c o n s i d e r e d t o have had 33% s u c c e s s and 67多 f a i l u r e . The f a i l u r e s

are due main ly t o :

(a) t h e l a c k o f appointment o f c o u n t e r p a r t p e r s o n n e l i n many p r o j e c t s ;

(b) t h e poor q u a l i t y o f some o f t h e p r o j e c t s ;

(c ) p o o r l y d r a f t e d p r o j e c t documents;

(d) i n s u f f i c i e n t t r a i n i n g and b r i e f i n g of t h e p r o j e c t managers; and

( e ) t h e weak i n s t i t u t i o n a l framework w i t h i n which they o p e r a t e .

1 5 7 . The Eas t A f r i c a n Community needs v e r y b a d l y , a t t h e moment, t r a i n e e s w i t h good

t e c h n i c a l and a d m i n i s t r a t i v e q u a l i f i c a t i o n s f o r running t h e "common s e r v i c e s " of t h e

Gonmiunity^ In a d d i t i o n , t h e Community needs q u a l i f i e d p e r s o n n e l f o r t h e p l a n n i n g and

e x e c u t i o n o f t h e j o i n t or common development programmes t h a t the Community i n t e n d s t o

undertake i n t h e c u l t u r a l , s o c i a l and economic f i e l d s .

1 5 8 . The UNDP r e g i o n a l t r a i n i n g programmes i n East A f r i c a do n o t show c l e a r l y i n

which f i e l d t h e d e v e l o p i n g c o u n t r i e s need h e l p w i t h a h i g h e r p r i o r i t y . The I n s p e c t o r s

b e l i e v e t h e UNDP shou ld f o r m u l a t e a c l e a r p o l i c y w i t h r e f e r e n c e t o development ,

f o l l o w i n g t h e r e s o l u t i o n s adopted by t h e General Assembly and ECOSOC, This p o l i c y

should be d i r e c t e d t o t h e l e a s t deve loped c o u n t r i e s t o h e l p governments t o meet t h e

most e s s e n t i a l needs o f t h e i r p o p u l a t i o n .

159• The t r a i n i n g programme should be adapted t o t h e s p e c i a l s o c i o - e c o n o m i c and

p o l i t i c a l s e t - u p o f t h e country or c o u n t r i e s concerned; and t h e y should b e ,

f u n d a m e n t a l l y , d i r e c t e d t o t h e t r a i n i n g of t e a c h e r s , w i t h s u f f i c i e n t s c i e n t i f i c or

t e c h n i c a l background t o i n s t r u c t t h e i r own n a t i o n a l s .

160 . The I n s p e c t o r s b e l i e v e t h a t t h e UN f a m i l y and mainly t h e UNDP, a s i t s " o p e r a t i v e

arm", shou ld g i v e p r i o r i t y t o t h e t r a i n i n g o f : (a) government p e r s o n n e l a b l e t o

f u l f i l t h e e s s e n t i a l a d m i n i s t r a t i v e f u n c t i o n s ; (b) government p e r s o n n e l and

t e c h n i c i a n s w e l l q u a l i f i e d t o prepare t h e i n v e n t o r y o f human, n a t u r a l and

i n s t i t u t i o n a l r e s o u r c e s as b a s i c data f o r any r a t i o n a l d e v e l o p i n g programme. The

development and optimum u t i l i z a t i o n o f n a t u r a l r e s o u r c e s has been s t r e s s e d i n the

World P l a n of A c t i o n , A f r i c a n R e g i o n a l P lan (E /CN.1¿ /L .¿07 ) . Even more important

i s t h e development and optimum, u t i l i z a t i o n o f t h e human r e s o u r c e s .

- 37 -

RECOMMENDATIONS

These recommendat ions a r e b a s e d on t h e o b s e r v a t i o n s made on UNDP r e g i o n a l

t r a i n i n g p r o j e c t s i n E a s t A f r i c a • N e v e r t h e l e s s , t h e I n s p e c t o r s b e l i e v e t h a t t h e y

c o u l d be e x t e n d e d t o o t h e r UNDP t r a i n i n g p r o j e c t s i n d e v e l o p i n g c o u n t r i e s .

1 . To s e t up t e a c h i n g i n s t i t u t i o n s i s a v e r y d i f f i c u l t p r o c e s s . The s u r v i v a l o f

t h e s e i n s t i t u t i o n s a f t e r t h e t e r m i n a t i o n o f t h e p r o j e c t i s sometimes f u l l o f t e c h n i c a l

and f i n a n c i a l i n c e r t i t u d e s . For t h i s r e a s o n UNDP t r a i n i n g p r o j e c t s i n d e v e l o p i n g

c o u n t r i e s s h o u l d be a t t a c h e d t o an a l r e a d y e x i s t i n g i n s t i t u t i o n , u n i v e r s i t y or

government t r a i n i n g c e n t r e •

2 . M u l t i n a t i o n a l t r a i n i n g i n s t i t u t i o n s s h o u l d be encouraged i n d e v e l o p i n g c o u n t r i e s .

For a l a r g e number o f s m a l l c o u n t r i e s t h i s may be t h e o n l y e f f e c t i v e means t o p r o v i d e

f o r t h e i r n a t i o n a l r e q u i r e m e n t s .

3 . The p r o j e c t documents s h o u l d be more c a r e f u l l y d r a f t e d than a t p r e s e n t ; t h e y

s h o u l d c o n t a i n s p e c i f i c p r o v i s i o n f o r t h e f o l l o w i n g p o i n t s :

(a) f o l l o w - ш by t h e e x e c u t i n g agency a f t e r t h e t e r m i n a t i o n o f t h e p r o j e c t

f o r a t l e a s t two or t h r e e y e a r s check ing： ( i ) t h e u s e o f t h e UNDP equipment;

( i i ) t h e maintenance o f t h e i n t e r n a t i o n a l s t a n d a r d o f t e a c h i n g ; and ( i i i ) t h e

proper use o f t h e c o u n t e r p a r t p e r s o n n e l ;

(b) t h e c a s e where t h e government cannot p r o v i d e , w i t h i n a r e a s o n a b l e t i m e ,

t h e c o u n t e r p a r t p e r s o n n e l . The appointment on t ime o f t h e c o u n t e r p a r t p e r s o n n e l

by t h e Government, s u b j e c t t o a d v i c e o f t h e p r o j e c t manager, s h o u l d be s t r e s s e d

by a l l t h e UN a g e n c i e s i n v o l v e d ; t h e appointment by t h e p r o j e c t manager, s u b j e c t

t o r a t i f i c a t i o n by t h e Government o f t h e c o u n t e r p a r t p e r s o n n e l , or t h e immediate

t e r m i n a t i o n o f t h e p r o j e c t , shou ld be c o n s i d e r e d ;

( c ) t h e c a s e where t h e s i g n a t u r e o f t h e p lanop i s b e i n g c o n s i d e r a b l y or unduly

d e l a y e d ;

(d) a s t a t e m e n t as t o t h e s t a g e a t which t h e p r o j e c t s h o u l d be c o n s i d e r e d

" o p e r a t i o n a l " . The a r r i v a l o f t h e p r o j e c t manager t o t h e f i e l d o f o p e r a t i o n s

and t h e appointment o f t h e co-manager s h o u l d be c o n s i d e r e d ;

( e ) t h e f i n a l r e s p o n s i b i l i t y f o r e n s u r i n g t h e appointmsnt o f t h e c o u n t e r p a r t

p e r s o n n e l s h o u l d be v e s t e d i n t h e r e s i d e n t r e p r e s e n t a t i v e .

L. The r e s i d e n t r e p r e s e n t a t i v e and t h e r e p r e s e n t a t i v e s o f t h e s p e c i a l i s e d a g e n c i e s

i n t h e c o u n t r i e s s h o u l d be i n s t r u c t e d n o t t o o f f e r t o t h e Government 一 or t o a c c e p t

from t h e Governments - p r o j e c t s which do n o t imply a good u s e o f t h e UNDP f u n d s

一 3 8 -

a c c o r d i n g t o UN g u i d e l i n e s on deve lopments The f f t r a i n i n g - f o r - d e v e l o p m e n t w concept

s h o u l d have p r i o r i t y �

5 . UNDP, f o l l o w i n g t h e r e s o l u t i o n s approved by t h e General Assembly and ECOSOC, i n

support and encouragement o f s o c i a l , p o l i t i c a l and economic i n t e g r a t i o n o r g a n i z a t i o n s

among t h e Member S t a t e s , shou ld s tudy t h e p o s s i b i l i t y o f g i v i n g such o r g a n i z a t i o n s

t h e i r own I n d i c a t i v e P l a n n i n g F i g u r e on a r e g i o n a l b a s i s .

6 . The e x e c u t i n g a g e n c i e s s h o u l d r e v i e w t h e i r p r a c t i c e s o f sending out p r o j e c t

p e r s o n n e l w i t h a minimal amount o f b r i e f i n g , p a r t i c u l a r l y t h e p r o j e c t managers�

C o - o r d i n a t e d g u i d e l i n e s on t h e management o f a t r a i n i n g p r o j e c t i n t h e l e a s t deve loped

c o u n t r i e s shou ld be produced u r g e n t l y .

ANNEX 工

MEMORANDUM ON THE SELECTION,. TRAINING AND DEVELOPMENT OF PROJECT MANAGERS FOR UNDP LONG-TERM TECHNICAL ASSISTANCE PROJECTS

by

James A, Green. Pro . i ec t Manager, RAF/68/109

INTRODUCTION

1 . Many c r i t e r i a are used t o judge t h e inmortalice and p r i o r i t y t o be g i v e n t o

proposed t e c h n i c a l a s s i s t a n c e p r o j e c t s , and t h e i r a s s e s s e d v a l u e s i n f l u e n c e t h e

d e c i s i o n s as t o whether or n o t such p r o j e c t s may be i n c l u d e d i n UNDP country

programmes, Trfhilst such c r i t e r i a are d i f f i c u l t t o rank i n order o f importance , i t i s

seldom t h a t e i t h e r ( i ) t h e s e l e c t i o n o f a p r o j e c t manager i s i n c l u d e d i n t h e l i s t , and

i f i t i s i n c l u d e d , t h a t i t heads t h i s l i s t , or ( i i ) t h a t thought i s g i v e n t o t h e need

t o prepare him f o r t h e t a s k t h a t l i e s ahead. Yet e v a l u a t i o n s o f completed p r o j e c t s

(and t h o s e t e r m i n a t e d b e f o r e t h e i r t e r m i n a l d a t e s ) p o i n t t o t h e f a c t t h a t t h e

performance o f p r o j e c t managers i s o f t e n t h e c r u c i a l f a c t o r which de termines r e s u l t s .

2 . What g u i d e l i n e s , i f any, have been l a i d dovjn t o a s s i s t t h e p e r s o n n e l departments

o f e x e c u t i n g a g e n c i e s i n t h e s e l e c t i o n o f t h e s e key p e r s o n s ? Perhaps t h e o n l y f a c t o r s

a t p r e s e n t a p p l i e d i n s e l e c t i o n can be smimarized as - (a) t e c h n i c a l conç>etence, (b)

t h e need f o r some a d m i n i s t r a t i v e e x p e r i e n c e , and (c ) a presumed a b i l i t y t o g e t a long

w i t h t h e h o s t country n a t i o n a l s and h i s p r o j e c t c o l l e a g u e s . Even f a c t o r s (b) and (c)

rank w e l l be low (a) and may no t even be i n c l u d e d i n an a s s e s s m e n t . From a v a i l a b l e

e v i d e n c e , i t appears t h a t seldom i s a s y s t e m a t i c s e l e c t i o n sys tem a p p l i e d i n t h e

appointment o f t h e s e c r u c i a l p e r s o n s •

3 . A f t e r h i s s e l e c t i o n , what a c t i o n i s t a k e n t o prepare a p r o j e c t manager so t h a t he

can implement the p r o v i s i o n s o f t h e p r o j e c t document and a c h i e v e the o b j e c t i v e s l a i d

down? U s u a l l y , o n l y an a l l - t o o - s h o r t b r i e f i n g s e s s i o n a t agency h e a d q u a r t e r s , coupled

w i t h t h e p r o v i s i o n o f a P r o j e c t Manager1 s Manual and background documents, ( o f t e n out

o f d a t e ) , c o n s t i t u t e s t h e i n t r o d u c t i o n t o h i s r e s p o n s i b i l i t i e s . W h i l s t he may have

some d i s c u s s i o n w i t h headquarters o f f i c i a l s r e s p o n s i b l e f o r a d m i n i s t r a t i v e , f i n a n c i a l

and p e r s o n n e l back-up s e r v i c e s , i t i s seldom t h e c a s e t h a t a p r o j e c t manager w i l l take

up h i s d u t i e s w i th a r e a l knowledge o f t h e a d m i n i s t r a t i v e , f i n a n c i a l and p e r s o n n e l

r e g u l a t i o n s upon which numbers o f h i s d e c i s i o n s must be b a s e d .

Very o f t e n a p r o j e c t manager may take up h i s d u t i e s w i t h o u t hav ing had t h e b e n e f i t

o f i n - d e p t h b r i e f i n g on t h e t h i n k i n g which went i n t o t h e d r a f t i n g o f the p r o j e c t

r e q u e s t . Thus he may have t o d r a f t t h e f i n a l p r o j e c t document which w i l l be h i s p l a n

一 2 -

of operation by attempting to interpret what was intended, through discussions

with host country nationals in the counterpart agency (who may or may not have been

involved in the drafting of the original project request), with a UNDP programme

officer in the resident representative•s office who may or may not be familiar with

the subject project and perhaps, if he is lucky enough to have one, with the local

field office of his parent agency. Much of his plan of operation may then be

coloured by his personal knowledge and past experience, coupled with his own inter-

pretation of local circumstances and conditions gained after perhaps only a short

time in the host country. There are, no doubt, advantages in allowing some flexi-

bility in the drafting of a project plan of operation. It may be, for instance, that

the original project request is a year or more in the pipeline and some factors

influencing its presentation may have changed. On the other hand, too many "local

interpretations11

may result in the project manager drafting a document which, whilst

acceptable to the host country, is different in detail to what was originally approved

at UNDP and executing agency headquarters. This can make for later problems.

SELECTION OF A TEAM LEADER

5. Requirements of the Team Leader1

s Position

It is not often appreciated that although nominally the "chief executiveи

of a

project, the authority and actions of a project manager are tightly constrained. Such

constraints, to mention only a few, can arise from the fact that he is often unable to

control the timing of inputs into the project - either from his own executing agency -

(appointment of staff, supply of equipment, etc*,) - or from the host government 一

(supply of accommodation, vehicles, counterparts, etc.)• His inç>lementation of the

plan of operation, particularly in regard to the time frame within which the project

is to be developed, is often affected by the wishes of the local officials, directives

from his own agency or the local UNDP resident representatives or by countless other

unplanned factors that arise and inçinge upon the project1

s planned performance. ¥hat

then, are the qualities to be possessed by a project manager and what can be done to

prepare him so 七hat he may overcome these and other difficulties and give him the best

chance possible to enable his project to achieve its objectives?

6. The "DimensionsH

of the Pro.iect Manager's Position

A recent s t u d y ^ has highlighted the dimensions of a project manager1

s position

1/ The US Agency for International Development has made a study to provide guidelines for the selection of technical assistance team leaders,based upon what is commonly termed the "critical incident

11

technique.

一 3 -

3. Interpersonal Relations ••••• 8.0

a. Ençathy b . Proper treatment of colleagues c. Courtesy and good taste

JOB ORIENTATION

Д. Motivation and Drive 8.0

a. Responsibility for attaining objectives b. Initiative c. Energy and effort

5. Acceptance of Constraints 10,0

a. Legitimacy of donor agency inputs b. Established policies c. Dictates of diplomacy

6. Development Commitment

EMOTIONAL MATURITY

7. Character 6.0

a. Personal integrity b. Chauvinism or institution building? c. Standards of personal conduct

1/ Based on analysis of 337 critical incidents reports.

Attention of detail Anticipating contingencies Using team members effectively Experience in government

and underlined the "critical actions11

by which he could influence the success of his

project. The following table shows these dimensions and also the percentage of

incidents that was included in some 337 reports from which the data was gathered.and

analysed.

Table 1

Requirements of the Team Leader Position

Requirement % of R e p o r t s "

BASIC QUALIFICATIONS

1. Technical Qualifications 7.0

a. "Goodness-of-fit11

to position b. Practical application of expertise c. Institution building d.

н

Рарегп

credentials

2. Administrative Ability 6.0

- л -

Table 1 ( c o n t M )

% of Reports: .1/

Personal Security 11.0 a. Open-minded and objective b . Ability to admit mistakes c. Relaxed about personal status

LEADERSHIP

9. Poise

a« Resists precipitous action b . Constructive response to mishaps c. Acceptance of reverses

11.0

10. Backbone

a. Defending convictions under stress b. Firmness with team members c. "Willingness to take appropriate risks

1Д.0

11. Political Finesse 13.0

a. Developing active supporters , b

# Sensitivity to undercurrents

o. Selecting appropriate tactics

7. It will be seen that eleven major factors have been identified as essential

elements and these are sub-divided into thirty-three specific performance require-

ments. The three standard elements mentioned in paragraph 2 above head the list, but

account for only one-fifth of the critical factors and should not, therefore, form the

sole basis for selection of a project manager. Other significant factors include the

"Job Orientation" sector, which is an attitudinal dimension, the "Emotional Maturity"

area, which is so important in team building, (no prima donna stance or seizing

chances for self-aggrandisement), and that most inç>ortant quality listed under the

heading of "Leadership1 1

, This latter is a difficult quality to define, but includes

ability to continue to act coolly under stress conditions, absorb frustration, not be

diverted from project objectives and yet develop and maintain synpathetic understanding

and support for project activities.

8. Selection Processes

It is most unlikely that paragons can be found who will fit all the criteria

described above. Nor is the development of procedures for selection of project

managers so advanced as to make it possible to set up tests for selection amongst

l/ Based on analysis of 337 critical incidents reports.

- 5 -

several candidates. The majority of factors listed are those within the human

behaviour domain which do not lend themselves to positive identification through

testing, even if it was practicable, feasible and financially possible to set up _

testing procedures.

What might be able to be done, bearing in mind the constraints governing

selection which are imposed by the very nature of the UN system, is to formulate

procedures by which as far as possible persons unsuited for the task can early in the

process be weeded out. Final selection would then be made easier and more positive.

Using the factors revealed above in Table 1, the following could represent the stages

to be followed:

(a) Job Description, The inmortalice of an accurately descriptive Job

Description cannot be over-eiiphasized. The Job Description must be written so as

to Include the variable requirements for the actual project in question. The

eight factors included in items 1(a) to (d) and 2(a) to (d) of Table 1 above can

take a variety of forms, but are iDç>ortant in ensuring selection of someone

technically capable and experienced enough to fulfil the task,

(b) Initial Selection. On the basis of a properly written J.D. it should be

possible to scan the executing agency list of available personnel and identify

persons who can realistically be considered for the position. Newcomers who may

be recommended through their countries TA agencies, or individuals who apply

should be closely conpared with the variable requirements described in the J.D.

(c) Screenings The usual method used in the UN system is the personal

interview. If candidates for interview have been carefully selected on the

basis of background and experience, then interviewers should be able to

concentrate on the "human conçonent". They should assess any tençeramental

shortcoming and exclude immediately any candidate who is clearly unsuited for the

assignment on personal grounds. Here inter-personal relations and character

would be used for this screening, which would lead to the next step 一 consulta-

tion with those who are the most plausible candidates about their own interests

in such an assignment.

(d) Self-Appraisal. This is the most critical of the procedural steps. The

candidates would not merely be asked whether they are available for an overseas

tour, but would be asked whether they think they fit the attitudinal and

motivational requirements of the job. To enable them to make an honest appraisal

they would be given the job description, the project request document and, (if

there is one), the draft plan of operation and any other available related

- 6 -

materials, e.g. the requirements listed from the critical incident data - see Table 1.

The country-relevant information that is usually only made known on pre-departure

briefing should be made available at this point, as this can often influence a

candidatefs decision as to whether his personal (family) circumstances, make him

suitable,

(e) Final Selection, The final group of criteria are more flexible than any of

those used above, as they comprise the various items which enable compromises and

trade—offs to be utilized in the final selection, IJo candidate is likely to meet all

the listed requirements, but if a good perspective can be obtained, the weighing of one

missing element against .another enables the best compromise to be reached. For example,

if the "Personal Security" dimension of a candidate did not achieve a high rating, he

might still be acceptable to co-workers if his substantive contributions were

outstanding.

Selection based on applying all these varied criteria would at least enable the

employing agency to know what the needs of the candidate were for special assistance,

supervision and Ъаск-up.

ORIENTATION AND FAMILIARIZATION

9. Even if an appointed project manager has previously served as a United Nations

technical assistance expert, it is unlikely that he will enter upon his new position

with a background knowledge of what is required of a project manager. Not only must the

project manager be thoroughly conversant with the overall objectives of his project and

be clear as to the methodology to be adopted to attain them, he should also be

conversant with the financial, administrative and personnel procedures and regulations

within which he has to operate.

10. Sufficient time should be allowed by the executing agency to enable a newly-

appointed project manager to be thoroughly briefed as well as given an understanding of

how he is to administer his project. He needs to undergo a short course to familiarize

himself with, e.g. what financial regulations he must follow; how to keep project

accounts; what are the basic staff regulations applicable to the recruitment and admini-

stration of international and locally recruited project staff; which periodic returns he

is expected to make; how he can order equipment; what stores1

receipts and records have

to be kept; in what form is he expected to make periodic progress reports, etc.

1 1

• 工七 i s n o t

enough however just to provide a project manager with knowledge of the

administrative and other procedures for operating a project. A number of the require-

ments listed in Table 1 above relate in various ways to what can best be termed

"project team building", e.g. 1(c) Institution building; 2(c) Using team members

effectively; 3(a) Enpathy; 8(a) Open-minded and objective; 8(c) Relaxed about

personal status； 10(b) Firmness with team members. Inhere a project is of any size,

e«g. six members or above,then an ability to build a team is a must in a project manager. If he is unable, either because of personality traits or character or lack of knowledge of how to go about it, to build up a cohesive team, then no matter how

well qualified he is, or how good an administrator, the project will not be fully effective.

12. Effort needs to be devoted during his briefing period to inculcating in the

project manager, by means of supplied readings perhaps, a basic knowledge of how to go

about building a team from the disparate human resources recruited to fill the project

experts1

posts。 In addition, when the project manager and the team members are in

post, they should undergo a short training course in motivational team building.

Unless a conscious effort is made to do this, the tendency will be for project staff

members to work as Individuals. It is not enough, therefore, only to look towards

inçroving a project manager's skills by giving him a knowledge of procedures, though

this aspect of his work is important•

13. Nor in respect of project administration is it enough to provide a project

manager with a copy of the P.M. f

s Manual and expect him to "read, mark, learn and

inwardly digest" its contents by himself. It is not always the case that a project

has in its manning table a post for a UN trained administrative assistant and often a

project manager may be faced with having himself to train a locally engaged staff

тэтЪег or counterpart-supplied administrative assistant, in procedures with which he

himself is not familiar. Much time can be wasted in this way, which he should be

devoting to substantive project matters。

1Д. The type of training required to orient and familiarize new project managers

should take place at the executing agency headquarters. It should not take more than

ten days at the beginning of their assignments but these days would be time and money

well spent. Most executing agencies have programme officers, desk officer or, as the

Public Administration Division, United Nations calls them 一 "Special Technical

Advisers", who are responsible for back-stopping of projects and who should be able to

give systematic in-depth briefing on the country; local conditions; background to the

project request; how the executing agency interprets the needs of the country which

the project is supposed to fulfil; and how it would like to see these expressed in the

plan of operation; problems likely to be encountered, etc. Other organs of the

executing agency could then give detailed information on and run through examples of

administrative, financial and personnel procedures and all the other matters mentioned

in paragraph 10 above. All this must be done in a systematic way, with each subject

- 8

thoroughly covered and the time needed to be devoted to each subject item carefully

worked out. Subjects should not be dealt with in the office of the particular

official, where interruptions are inevitable, but in a briefing room designed for this

purpose, and the necessary background and training materials and examples should be

made available.

16. The team building exercise could only be carried out in the field. It could

either be carried out for the international project members alone, or even more

effectively, by combining them in a short course with their counterparts. A course

such as the и

Coverdale Motivational Team Building C o u r s e w h i c h lasts ¿^ days Monday

through Thursday, eight hours per day, with half a day on Friday, might well be built

into the project document (plan of operation), and the cost included in the UNDP

project contribution.

17. It is believed that if the selection procedures for project managers are properly

structured and these are coupled with a well-designed orientation and familiarization

course, which then culminates in a team building exercise, then the failure rate of

projects caused through shortcomings of project managers can be effectively reduced.

Nairobi 2L August. 1973 505 - IB