Punjab Resource Management Program

Planning & Development Department

Government of the Punjab
Capacity Building Framework
for Punjab

Punjab Resource Management Program

Planning & Development Department
Government of the Punjab
 © 2006 by Punjab Resource Management Program (PRMP),
Planning & Development Department , Government of the Punjab
Lahore, Pakistan.

All rights reserved. No part of this publication may be reproduced, stored in a retrieval
system, or transmitted, in any form or by any means,
electronic, mechanical, photocopying, recording, or otherwise without the prior
permission of the
Punjab Resource Management Program.

Published by Capacity Building Team, PRMP

Complied by Mehnaz Bhaur, Deputy Program Director, PRMP
Concept & Preparation by Fawad Akram Assistant Director (CB), PRMP
Format, Graphics & Design by Nauman Ellahi, Network Administrator, PRMP.
 Foreword

E
fficient and effective achievement of government outcomes depends on the ca-
pabilities of the government functionaries. Capacity building, which is central to
organizational performance, requires a systematic management approach to
learning and development as an integral part of workforce planning. Learning and development
is a key management function for all government agencies and Administrative Departments.

This framework is tailored specifically for the public sector after due consultation with the
key stakeholders. This is a document that envisages an over-arching policy of capacity building
and training for the government employees both in the short as well as the long term. The inten-
tion is to take an overview of the problems currently being faced by the government departments
with special reference to capacity of the available workforce and to propose possible solutions.
This document articulates the characteristics of a framework for building capacity. It incorpo-
rates policies on how to promote learning and development planning; stresses the need for align-
ment and integration with other workforce activities, such as workforce planning and perform-
ance management; and shows the way forward to support a learning culture and articulates gov-
ernance considerations to fulfill peoples’ expectations. This incorporates the road map for capac-
ity building of the Government employees.

PRMP acknowledges the professionalism of the Administrative Departments, consult-

ants, and the academia who have contributed to the formulation of this Framework.

Asad Sumbal,
Director Program,
Punjab Resource Management Program
 Contents
Title Page# Title Page#

Chapter 1: INTRODUCTION 1 4.4.1: Change Management Unit 25

1.1: Rationale for Capacity Building Framework 2 4.4.2: Project Management Unit 26

1.2: Role of Capacity Building and Development 4 4.4.3: Decentralization Support Program 26
of Human Resource (DSP)

1.3: Rationale for Capacity Building Interven- 4 4.4.4: Provincial Management Service 26
tions Chapter 5: Capacity Building Initiatives of PRMP 28
Chapter 2: PRINCIPLES OF CAPACITY BUILDING 7 5.1: Training Need Assessment 28
2.1: Align learning with the business 7 5.2: MoU with Civil Services College, Singa- 29
2.2: Integrate Learning and HR with business 8 pore
processes 5.2.1: Track-I 30
2.3: Create a learning culture 9 5.2.2: Track-II 31
2.4: Provide appropriate learning options 10 5.2.3: Time Schedule 31
2.5: Managing Learning Effectively 10 5.2.4: Project Management 32
2.6: Support application of skills in the work- 11 5.2.5: Report Submissions 32
place
5.3: Degree Courses (Long Term Training 32
2.7: Evaluate Learning and Development 11 Programs)
Chapter 3: Punjab’s Capacity Building Diagnostic 15 5.3.1: Training Abroad 32
Analysis 5.3.1.1: Selection Criteria 33
3.1: Limited Capacity of Training Institutes 16
5.3.12: Surety Bond Requirement 33
3.2: Lack of Training Need Assessment 16
5.3.1.3: Debriefing after Training 33
3.3: Lack of Interest in Training Programs 17
5.4: Executive courses 33
3.4: Need for strategic Planning 17
5.5: Local Training Programs 34
3.5: Lack of Effective Training 18
5.6: Training and PMS 35
3.6: On the Job Training 18
5.7: Long Term Training Liaisons with 35
3.7: Relevance of Course Content 19 Counterpart Institutes of Excellence
3.8: Absence of a Training Road Map 19 5.8: Case Study Method 36
3.9: Lack of Monitoring and Evaluation 19 5.9: Training the Trainers 37
3.10: Current Changes in the Structure of the 20 5.10: Monitoring and Evaluation 37
Government of Punjab
Chapter 6: Conclusion 41
Chapter 4: Institutional Framework of Capacity 23

Building in Punjab
4.1: Services and General Administration 23
4.2: Management and Professional Develop- 24

4.3: Office of DO (HRM) 25

4.4: Other Institutions and Projects 25
 Acronyms
PRMP Punjab Resource Management Program

ADB Asian Development Bank

GONGOs Government owned Non government Organizations

GDP Gross Domestic Product

LG Local Government

PLGO Punjab Local Government Ordinance

TMAs Tehsil Municipal Administrations

UAs Union Administrations

TA Loan Technical Assistance Loan

CDI Capacity Development Intervention

SP Sub-Programs

PSCBP Public Sector Capacity Building Project

HR Human Resource

CB Capacity Building

HRMIS Human Resource Management Information Systems

GoPb Government of Punjab

TNAs Training Needs Assessment

PG Provincial Government

O&M Organization and Methodology

S&GAD Services & General Administration Department

MPDD Management and Professional Development Department

DO (HRM) District Officer (Human Resource Management)

DSP Decentralization Support Program

CMU Change Management Unit

PMS Provincial Management Service

IT Board Information Technology Board

DSD Directorate of Staff Development

GP Fund General Provident Fund

SMEs Small and Medium Enterprises

P&D Planning and Development

 Acronyms
E&T Excise and Taxation

BOR Board of Revenue

NIBAF National Institute of Banking and Finance

LUMS Lahore University of Management Sciences

CMD Centre for Management Development

NIPA National Institute of Public Administration

PPSCBP Provincial Public Sector Capacity Building Program

CSC Civil Service College

MoU Memorandum of Understanding

CBTI Capacity Building Training Initiative

TORs Terms of Reference

PMU Program Management Unit

LTTP Long Term Training Program

MBA Masters in Business Administration

SMP Senior Management Program

Introduction

T
oday’s world is chang- focus now. For these newer concepts
ing fast with greater new skill sets are required in addition
focus on consumer sat- to building capacity to meet the exist-
isfaction and development of efficient ing challenges. It is therefore impera-
systems of service delivery. Emerging tive to build the capacity within the
global standards of governance raise Government not only to meet the ex-
an increasing demand to measure the isting skill requirements but also to
Emerging
performance of governments, institu- meet the future skills requirement. In
tional quality, business processes and nutshell a comprehensive Capacity De- global
people’s perceptions. In recent times, velopment and training framework is
standards of
accelerated change has been brought required in this regard.
about globally by technological ad- governance
In line with these changing
vances, greater decentralization and
social activism. The ramifications of
trends, the Government of Punjab has raise an
embarked upon a major reform
these changes are being felt by gov- increasing
program which aims at improving
ernments in the form of people’s in-
service de liver y and business demand to
creasing expectations for better gov-
processes. Government of the Punjab
ernance through effective service deliv- measure the
has launched Punjab Resource Man-
ery, transparency, accountability and
agement Programme (PRMP) with the performance of
rule of law. Civil service, as the primary
assistance of the Asian Development
arm of government, must keep pace
Bank. PRMP is the major policy and governments,
with the changing times in order to
governance reform program of the institutional
meet these growing expectations of
Government of the Punjab. The pro-
people.
gram seeks to improve service deliv- quality,
With the changing public ex- ery with particular emphasis on pro- business
pectations, the outlook of the public poor sectors through structural reforms
service is also changing. The concept in systems and processes to processes and
of public private partnerships, Govern- effectively manage public resources
peoples’
ment owned Non government Organi- and create enabling environment
zations (GONGOs) and Arms length for the involvement of private sector. perceptions
organization is also under increased

Chapter 1
 Introduction

1.1) Rationale for Capacity Build- healthy society. It will have an excel-
ing Framework lent education system, thriving and
competitive markets, strong interna-
The objectives of formulating
tionally competitive companies, world
the Capacity Building Framework are:-
class infrastructure with modern urban
• to better define overall capacity- centers, a high value adding agricul-
building needs of the provincial ture sector and a smart small and effi-
government departments, agencies cient government - an economy with
as well as local governments significant presence of international
• to identify and define priorities for investors and a per capita GDP in ex-
Chief Minister, Capacity development cess of US$ 2000. This implies that
Punjab, has • to develop an implementation plan Punjab will grow its per capita GDP by
for capacity development over eight percent a year and lends
flashed his meaningfully holistic view to the en-
• to provide a better practice model
hancement of capacity building of the
vision under for managing learning and devel-
opment processes across the pro- civil servants of the province.
the rubric of vincial services
Local Government (LG) System
‘Vision 2020’ to • to foster a learning culture for bet- has been established under the Pun-
ter business outcomes jab Local Government Ordinance
bring out
In order to incorporate interna- (PLGO) 2001. Under the Ordinance a
enormous tional trends in civil service featuring number of new offices have been cre-
prompt service delivery management ated to perform different functions.
practical and performance orientation leading to These offices have been assigned cer-
changes in the amelioration of the lot of the poor to tain powers and responsibilities, which
say the least, the Chief Minister, Pun- they are required to exercise in accor-
provincial jab, has flashed his vision under the dance with the provisions of the Ordi-
administrative rubric of ‘Vision 2020’ to bring out nance. The LG system has replaced the
enormous practical changes in the pro- old system of provincial administrations
system vincial administrative system. The vi- at the division, district, and tehsil lev-
sion for Punjab is a vision of relentless els. The new system, regulated under
pursuit of modernization, innovation, the Punjab Local Government Ordi-
confidence and tolerance. The province nance 2001, provides for much more
has to lead the country into the 21st autonomous LGs in districts, Tehsil
century. This vision means that by Municipal Administrations (TMAs) in
2020, Punjab would be a fully literate, towns and Union Administrations (UAs)
fully employed, highly educated, in villages. This has led to redefinition
skilled, talented, tolerant, culturally of responsibilities along functional lines
sophisticated, internationally con- which in public policy formulation
2 nected, and a reasonably well off

Chapter 1
Introduction

and strategic management lies with tions would depend on training needs
the provincial governments and social assessment, which is planned to be
service delivery and implementation carried out, the provincial government
responsibilities are the domain of the intends to develop an over arching
district governments. In these changed framework for capacity building and
circumstances, it is imperative that the training. The Capacity Building Frame-
new required skill sets are learnt by work would provide a roadmap for
the public sector employees and func- bridging not only the present skill-gap
tionaries. In these circumstances, Ad- but also for identifying capacities/skills
ministrative Departments need differ- required for future. The framework is
ent sets of knowledge and skills and intended to set targets for long and In order to
the District Governments need com- short term training and include an im-
pletely different ones. plementation strategy. The main ob- meet the
jective of the CDI under PRMP is to challenges of
In order to meet the chal-
increase the knowledge and skills of
lenges of reforms and to ensure sus- reforms and to
the public sector employees in areas
tainability of these reforms, it is none-
of:
theless imperative that capacity of the ensure sustain-
— improved governance
officers is enhanced to perform func- ability of these
— fiscal and financial management
tions and discharge responsibilities
— public sector service delivery
suitably. Training & capacity building reforms, it is
— private sector development
of officers of the provincial govern-
nonetheless
ment is therefore a major component An amount of US$ 2 million has been
of revised PRMP TA Loan. Revised PC- provided for the Capacity Development imperative that
II for PRMP lays enhanced focus on Interventions (CDI) to be utilized dur-
capacity of the
training and capacity building of the ing the Sub-Programs (SP) 2 & 3 of the
officers of Government of the Punjab. Punjab Resource Management Pro- officers is
Punjab Government has already show- gram (PRMP). The project will also be
cased its development interventions financed through World Bank funded
enhanced to
and reform initiatives that are planned Public Sector Capacity Building Project perform
for the medium term. The provincial (PSCBP) having a total outlay of US $
government realizes that success of 61 million that has share of Govern-
these reform initiatives depends on ment of the Punjab to the tune of US $
corresponding institutional capacity 2 million. This makes capacity develop-
building/strengthening and up- ment a main focus of the US$ 4 million
gradation of skills of the provincial hu- Technical Assistance Loan under the
man resource. While specific interven- PRMP.

Chapter 1
 Introduction

1.2) Role of Capacity Building and ple have, but also their attributes, atti-
Development of Human Resource tudes and behaviours. Learning and
development activities can be designed
Development of Human Re-
to deliver specific skills in a short pe-
source (HR) and their capacity to de-
riod of time to meet an immediate
liver is the need of the day. The pur-
need, or designed to achieve broader
pose of ‘Capacity building’ is reorienta-
requirements over a longer period.
tion of Civil Services and making them
These endeavours include activities to
more dynamic, efficient and account-
enable people to acquire new capabili-
able apparatus for public service deliv-
ties which can include on-the-job train-
Capacity ery built on ethos and values of integ-
ing, development opportunities, such
rity, impartiality and neutrality. The
building, as special projects, conferences and
primary goal of all reform processes is
mentoring, as well as formal classroom
learning and to raise the quality of public service
training.
delivery and enhance the capacity of
development officers to carry out core government The role of Capacity Building is
encompass a functions, thereby, leading to sustain- to equip human resource with the
able development and reduction of state of the art knowledge and skills
wide range of poverty. whereby the personnel become effi-
cient and effective professionals who
activities The urgency to instill capacity
can be an important part of a merit
designed to building reforms in civil services is dic-
based bureaucracy.
tated as much by the imperatives of
Improve the global developments as by the forces 1.3) Rationale for Capacity Build-
of new technology and communication ing Interventions
capabilities of
which are shrinking distance, rendering
people Governments rely on the
conventional approaches and practices
knowledge, skills, and abilities of its
of administration obsolete and dys-
employees to produce goods and ser-
functional. A number of measures have
vices efficiently, effectively, and re-
to be taken for simplification of rules
sponsively. As governments modify
and procedures, delegation of en-
their responsibilities in an increasingly
hanced powers, better enforcement
integrated world, and face increasing
and accountability and speedy redres-
competition from other service provid-
sal of public grievances. Capacity build-
ers, they must keep their human re-
ing, learning and development encom-
source abreast of modern disciplines,
pass a wide range of activities de-
technology and information. Training is
signed to improve the capabilities of
increasingly important for all govern-
people. Capabilities comprise not only
ment entities that must cope with new
the technical skills and knowledge peo-
4

Chapter 1
Introduction

responsibilities and rising expectations. pacities in key departments. PRMP has,

therefore, outlined an over-arching
Training can also play a key in
policy plan for CB interventions and
improving employee performance, and
initiatives in the form of Capacity Build-
increasing their level of commitment to
ing Framework.
work and deliver efficiently. Shifting
attitudes of today’s workforce towards
learning and development also require
a changed response by government
departments and agencies, reinforcing
the need to provide continual learning PRMP has,
and development in order to attract therefore,
and retain staff and to be an employer
of choice. The changing size, nature, outlined an
career intentions and patterns of new over-arching
entrants, require a more structured
approach to learning and development. policy plan for
An increased emphasis by the Govern-
CB
ment and public on performance im-
provement and accountability for the interventions
effectiveness of learning and develop-
and initiatives
ment outcomes and expenditure, in a
more devolved environment, requires in the form of
rigorous analysis and reporting on
learning and development.
Capacity
Building
Government of the Punjab
based on the aforementioned interna- Framework
tional changes in civil services and
public sector reform intends to intro-
duce a series of Capacity Building ini-
tiatives. Civil Service Reforms are being
introduced which give increasing im-
portance to Capacity Building. Training
& Capacity Building component of the
PRMP is being developed and would
include training needs assessment stud-
ies, short and long term training
courses both domestic and interna-
tional as well as building ca- 5

Chapter 1
Principles of Capacity Building

C
apacity building is an short and long-term organizational ca-
enormous task and pability requirements and establish
needs to be conducted learning and development strategies
in an organized and planned manner. and plans that are aligned with desired
In order to be able to plan the inter- outcomes as identified in key planning
vention in a systematic manner, it is documents such as: Capacity
necessary that a brief overview of the
• corporate plans, Portfolio Budget building is an
principles of CB may be taken. These
are discussed in this chapter. Statements and business unit plans enormous task
and needs to be
conducted in
an organized
and planned
manner

Align
learning with
the business
2.1) Align learning with the busi- • workforce/people management
ness strategies.
The capability requirements
There are various indicators of
should cover subject matter, skills and
this principle. These are:-
knowledge relevant to the agency’s or
Capability requirements -- Identify business unit’s role and challenges, as
7

Chapter 2
 Principles of Capacity Building

well as broader capabilities in manage- • avoid duplication of effort

ment and leadership. Governance -- • send consistent messages and lead
Ensure appropriate governance struc-
to common practices
tures, include clear lines of responsibil-
• enhance efficient allocation of re-
ity and reporting to reinforce the link
sources
between organisational capability
needs and the formulation of learning
• simplify delivery

and development strategies and result- • achieve synergy with other busi-
Integrate ing activities. ness processes and systems.

Learning and Organizational culture -- Articulate An integrated approach may

what the current culture ‘looks and- also foster a ‘virtuous cycle’ where, for
HR with example, improvements in department
feels’ like and map this to the desired
business culture necessary to achieve business capability statements feed into im-
objectives. Take into account: proved recruitment and learning and
processes development programs, which feed
• department/ agency specific values
into better performance management
• departmental demographic profile
processes and then on to revisions of
• client service charter
the department capability statements
• factors such as funding issues, legisla- etc. An integrated approach should
tive and privacy or security require- help to clarify roles and responsibilities,
ments, workplace relations issues.
so that
Funding mechanisms and proc- • supervisors may be in the best
An integrated esses -- Ensure that funding is allo- position to define employees’ work
approach cated against organisational priorities, (‘What’s my job?’)
including any regional needs. • assess performance (‘How am I
should help to doing?’)
2.2) Integrate Learning and HR
clarify roles with business processes
• business unit heads should ensure
overall alignment with business
and responsi- This includes:- requirements and integration with
bilities other people management strate-
Other People Management Strate- gies.
gies -- Develop an integrated and co-
People management processes --
herent approach to people manage-
Make all managers and staff aware of:
ment – so that learning and develop-
ment strategies are integrated with • your department’s desired capabili-
other people management strategies ties and learning and development
to achieve outcomes effectively. An priorities

8 integrated approach will: • their responsibilities for learning

Chapter 2
Principles of Capacity Building

• and development, including identi- and decision-making by managers.

fying individual learning and devel-
2.3) Create a learning culture
opment needs, and how other HR
processes fit in with learning and This includes:-
development. Leading by example –
Core business processes -- Identify • Show that you value and support
and exploit opportunities to integrate your own learning and develop-
learning and development with the ment as an essential component of
department’s core business processes. the way you do business.
• Integration of learning and devel- • Senior managers regularly address
opment with core business activi- their own learning and develop-
ties contributes to timely, efficient ment needs.
and effective provision of learning. Active commitment –
• Learning and development options • Invest appropriate resources in
need to be coherent with business learning and development of your
practices to ensure maximum ef- staff. Create a
fectiveness and commitment from
• All managers contribute to work- learning culture
line managers and employees. It
force planning, including the devel-
may be possible to leverage off
opment of learning and develop-
existing business practices and
ment strategies.
processes to increase the impact of
learning and development.
• Show your commitment by consis-

Human resource management in- tently taking an ongoing interest in

formation systems (HRMIS) -- En- your staff’s learning and develop-

sure that a learning and development ment.

information system is in place (within • Encourage both on and off-the-job
or linked with the HRMIS) to give the development activities.
information required for accurate
Blurring the lines between learn-
monitoring by management, reporting
ing and work -- Integrate learning
and forecasting. Ideally, the learning
with day-to-day work.
and development information system
should have the ability to:
• This could involve putting systems
and processes in place for manag-
• collate department-wide develop-
ing information and sharing new
ment needs for input into your
knowledge both within work areas
learning and development program
and across your department.
deliver accurate baseline
• Learning and development is seen
• data by monitoring and reporting
as a legitimate business invest-
functions to support interpretation 9
ment in all major initiatives.
Chapter 2
 Principles of Capacity Building

2.4) Provide appropriate learning is as critical for effective business

options outcomes as are longer-term de-
velopment strategies.
Needs-based content -- Business
• Adult learners prefer self direction;
objectives and capability requirements
learn best from experience; need
drive the subject matter and content of
to integrate their learning with
learning options. The content should
what they already know and have
address each of the following require-
different styles.
ments:
• Human resource areas must be
• subject matter
proactive and skilled at brokering
• skills
cost-effective, creative learning
• knowledge activities.
• management-related skills • Use on-the-job training where ap-
• (leadership) behaviours. propriate.
Combining different learning interven-
It should address these re- tions is becoming more common as a
Managing quirements both in the short term as strategy to increase the effectiveness
Learning well as in the longer-term to address of the transfer of learning.
emerging challenges and/or the need
Effectively to build up particular organisational 2.5) Managing Learning Effec-
capabilities. Departments may choose tively
to consider offering learning and devel- This is an important part of
opment that is accredited. Capacity Building process.
Appropriate interventions -- Sys- Value for money service delivery -
tematically plan learning interventions - Make sure that a department under-
that are appropriate to the characteris- stands and has the necessary skills to
tics of the organization, including cul- deliver an effective value for money
ture and demographics, and respond learning and development function in
to the preferred learning style of the the organisational context. The func-
individual. These should be timely and tion could be provided externally or
provided in a variety of forms such as internally or as a mixture of both.
on-the-job training, development op- If purchasing from external providers
portunities and conferences. ensure proper consideration is given to
• Learning theory and practice indi- value for money issues.
cate that learning is most effective • Effective stakeholder relation-
when the intervention is directly ships -- Identify stakeholder
related to needs and is immedi- needs and maintain effective rela-
ately relevant. tionships to ensure a clear under-
10 • Timely access for immediate needs standing of expected

Chapter 2
Principles of Capacity Building

outcomes and issues. Stakeholders for bilities.

learning and development include: Opportunities to apply new skills -
• those responsible for people man- - Encourage staff by providing oppor-
agement, tunities for them to test and develop
new skills:
• business unit heads,
• Reinforce or clarify any leanings
• individual staff,
that are critical to the organiza-
• contractors
tion’s performance.
Monitoring and reporting -- Put in
• Ensure suitable job/task allocation.
place effective systems for monitoring,
Make required technology avail-
evaluating and reporting on the value Support appli-
able.
for money of the learning and develop-
Opportunities to disseminate new cation of skills
ment function and activities.
knowledge -- Provide support to staff
• Decisions about how to undertake in the
to disseminate newly acquired informa-
this element will depend on the
tion on key subject matters. Such sup- workplace
functionality of existing human
port could include seminars, presenta-
resource information systems,
tions workshops etc. There may also
agency size, needs and available
be opportunities within work areas,
funds.
within the agency or across the APS to
• Effective monitoring and reporting
foster ‘communities of practice’ for ar-
will facilitate effective future plan-
eas of speciality or for areas of com-
ning and budgeting.
mon interest such as policy develop-
ment, program delivery, regulation, Evaluate Learn-
2.6)Support application of skills in
the workplace legal, IT, accounting and evaluation ing and Devel-
and so on.
In order to get the maximum On-the-job performance evalua- opment
benefit of Capacity building initiatives, tion -- Give regular timely informal
it is most important to ensure that feedback to staff, as well as formal
workplace applications support the when required through the depart-
interventions. ment’s performance management sys-
Supportive workplace environ- tem.
ment -- Encourage a supportive envi-
ronment to enable newly acquired 2.7) Evaluate Learning and Devel-
skills to be nurtured and to enable the opment
transfer of learning to the workplace.
Evaluation of learning and de-
This could include mentoring and
velopment serves two important pur-
coaching (formal and informal) ar-
poses. It is not only an assessment of
rangements as part of managers’ and
whether money has been spent wisely,
supervisors’ normal responsi- 11
but is also part of the normal ongoing
Chapter 2
 Principles of Capacity Building

management to fine-tune strategies • What is the learning strategy and

and improve delivery. It is important to cost?
recognize that with learning and devel-
• Why do we believe it will meet our
opment there may well be no defined
needs?
end. It is quite likely that strategies
• How will we be able to tell if it is
would be adjusted in an evolutionary
‘fit for purpose’?
way – but, ideally, as the result of an
evaluation. It is also important that • To what extent does learning and
evaluation is programmed in from the development
Evaluate the
start. Proper consideration should be ο specifically address business
success of the given to what to evaluate, when and needs?
learning how. ο align with priorities that are identi-
fied in department’s strategic plan-
intervention by A meaningful evaluation activity
ning, workforce planning and per-
consists of the following elements:-
measuring formance management systems?
• Relevance
ο address current and future capa-
whether the • Appropriateness bilities?
individual(s) • Reaction Appropriateness -- measure how
• capability acquired appropriate the allocation of resources
has acquired to learning and development is to iden-
• performance on the job
the capability, tified needs and priorities. Take into
• outcomes.
account:-
knowledge, Evaluating learning model links • the extent of integration of learn-
attitudes, or to the overall management of learning ing and development with other
of development. Evaluation requires HR strategies and business prac-
competency the collection of meaningful data on tices
required the inputs, outputs and outcomes of • the desired benefits
programs. Return on investment or
• the scope of each intervention
value for money assessments are
• quantitative and qualitative infor-
based on an assessment of the value
mation about the level and nature
of outcomes compared to the value of
of investment
inputs.
Relevance – means to assess how • how well the design of the inter-
well proposed learning and develop- vention matches the desired cul-
ment interventions address business ture and the needs of the target
needs, capability needs, and individual audience
needs within the department. When • risks
designing the evaluation strategy, in- • alternatives.
12 clude questions such as:-

Chapter 2
Principles of Capacity Building

• To what extent are learning and capabilities demonstrated by partici-

development integrated with: pants to the identified standard or level
ο human resource management at:

strategies • the conclusion of the intervention?

ο relevant business practices? • an appropriate period after the

Reaction – This can be of the partici- intervention?
pants as well as of the facilitator. • Performance on the job -- As-
• What satisfaction rating do par- sess individual performance on the
ticipants give to aspects of the job following development inter-
intervention such as relevance, ventions.
currency, suitability of delivery
These processes include infor-
method and quality of the pre-
mal support and coaching and formal
senter? To what extent do partici-
performance management processes.
pants believe the objectives of the
The following may be assessed:- Assess out-
intervention were achieved? What
satisfaction rating do participants
• What is the level of opportunity to
comes
apply the acquired capability in the
and line managers give to the tim-
ing of the intervention and the
workplace, as perceived by an indi- achieved at
vidual and line managers?
suitability of information provided individual,
(such as accessibility of the infor- • To what extent do participants
mation, clarity of objectives and demonstrate the acquired capabil- group and/or
target audience)? ity in the workplace, as perceived
organizational
by themselves, colleagues, line
How highly does the pre- managers and stake holders. levels
senter or facilitator of participants Outcomes of learning and development
can be used to measure immediate -- Assess outcomes achieved at individ-
reaction to aspects of the intervention ual, group and/or organisational levels.
such as topic, speakers, format, sched- They can be positive, negative or, at
ule, relevance, appropriateness of times, ambiguous. Consider:
placement. How highly does the pre- • Did we get value for money?
senter or facilitator rate participation
• Did our investment accrue tangible
and engagement?
and intangible results leading to
Capability acquired -- Evaluate the
better business outcomes?
success of the learning intervention by
measuring whether the individual(s)
• Could we have achieved the same

(and therefore the department) has or better outcomes – cheaper and/

acquired the capability, knowledge, or quicker?
attitudes, or competency required. To • How can we improve?
what extent are the acquired 13

Chapter 2
Punjab’s Capacity Building Diagnostic Analysis

I
n order to be able to officers of GoPb. In today’s world, the
come up with the policy districts require a highly professional
for improving the capacity manpower that can respond to highly There are Huge
of the public servants, it is important complex nature of assignments and Gaps that has
to first highlight the problems existing their satisfactory consumer-focused
in the system which lead to no or ill- performance. Also there is a corre- to be Bridged
planned training, if any. Most of the sponding lack of organizational compe-
times, training is not welcome both to tencies/capabilities in districts. Thus
those who are receiving it as well as to there is a huge gap which has to be
those who are delivering it. Therefore, bridged.
Gaps in district
there is need to analyze the existing Refresher courses – follow up –
issues that impede the path of training regular support system: In order to capacity for
and capacity building in the public sec- build the capacity of the available hu-
tor. Punjab Resource Management Pro- man resource, there is a need to con-
Service
gram, Planning and Development De- duct refresher courses with uninter- Delivery
partment held a workshop in July 2006 rupted frequency keeping the officers
which was attended by experienced abreast of the latest advancements in
career civil servants, retired civil ser- relevant fields of study, business proc-
vants and other reputed academicians. esses and organizational behaviors.
The purpose was to identify the areas Support for change of roles: The Gaps in capac-
where Capacity Building and Human organizational mind set prevalent in
ity for Strategic
Resource Management needed im- the provincial settings has to change
provement. Adopting the carousel from a laidback, complacent attitude to Management,
method, the participants identified the one which is dynamic, proactive and
Policy Formula-
following areas where capacity building revolutionary. Doctors, teachers and
interventions are required. specialists - all have to act as manag- tion and
1. Gaps in district capacity for Ser- ers.
Regulation
vice Delivery Technical Skills: What seems to be
2. Gaps in capacity for Strategic the most puzzling aspect of raising the
Management, Policy Formulation human and organizational façade is the
and Regulation dire shortage of technical know-how
3. Gaps in Training and skills to discharge responsibilities Gaps in
4. Incentives / Accountability Gap in the ever competitive environment
Gaps between required and de- which is fast becoming more and more Training
sired competencies/capabilities: dependent on Information Technology.
There is an acute gap between the Therefore, Punjab government
required and desired levels of knowl- should prioritize drive for enhance-
edge, skills and qualities among the ment of skills of its employees.
15

Chapter 3
 Punjab’s Capacity Building Diagnostic Analysis

In order to be able to formu- in terms of promotion, pay package,

late a comprehensive Capacity Building bonus, etc. To be effective, training
Framework which can meet all training centers must have excellence and con-
requirements of GoPb, a detailed tinuity of leadership, and an environ-
analysis of the problems prevalent in ment that fosters innovation and ex-
the system needs to be conducted. perimentation.
Following are some of the issues that
need to be addressed by GoPb. 3.2) Lack of Training Need Assess-
ment
3.1) Limited Capacity of Training
Institutes Training needs assessment
Limited (TNA) is typically lacking, so that train-
Government of the Punjab has ing programs do not meet the needs of
Capacity of weak or nonexistent institutional struc- either the employees or the govern-
tures for training. The scarcity of local ment and are a drain on resources.
Training
resources and the limited capacity of Furthermore, the usefulness of training
Institutes local training institutions constrain the is diluted by lack of reinforcement from
departments of the government from supervisors after the trainee returns.
themselves addressing the training Accordingly, training evaluation is typi-
needs of government employees. The cally mechanical and not linked to the
training staff is inhibited by civil service outcomes or to actual utility of the
regulations and practices; lacks mate- training program.
Lack of rial incentives or career prospects, and
its subject competence is sometimes A good training needs assess-
Training Need weak. The poor quality of training in ment must rely largely on the views of
most training institutions and the con- all major stakeholders in the exercise,
Assessment
centration of expertise in a few na- including the public managers and the
tional institutions stationed in the pro- potential trainees. Also, the statement
vincial metropolis are serious prob- of needs must be relevant and quanti-
lems. Many public training institutions fiable, rather than assemble vague or
are unfamiliar with good training prac- subjective opinions. The training report
tices in the private sector. There is no should be agreed upon with the minis-
system for training of the trainers try/department or agency concerned
which inhibits adding to their knowl- and would normally include:
edge base in chime with rising de- • Assessment of employees’ skills
mands of training in the public sector and the work environment;
organization. Further, there is lack of • Assessment of skills required for
motivation among trainers as there are the functions of the organization;
no special incentives available to them • Identified skill gaps;
16

Chapter 3
Punjab’s Capacity Building Diagnostic Analysis

• Identified types of training and single largest sources of wasted assis-

target participants among the dif- tance to developing countries.
ferent groups of employees;
3.4) Need for strategic Planning
• Domestic and foreign institutions
that can provide the training, and Training and Capacity Building
the problems related to such provi- programs are often not planned cor-
sion; and rectly. No TNAs are conducted before Lack of
• Estimated training costs, con- initiating training and no plans are
Interest in
straints on the release of staff for made for optimally utilizing the re-
training, and other practical issues. sources of the trained officers. Training
Whether the training received by the
3.3) Lack of Interest in Training
Programs
officers was useful or relevant to the
Programs field of the officer’s work is never
found out after the completion of the
In large part, these problems
courses. The extent of value addition
arise because most training activities
which the training courses have made
are supply-driven, and there is little
is never gauged and assessed. Training
involvement or interest among line Normally,
is only one of the four key components
departments/ ministries and their em-
of institutional capacity building (the training is
ployees in the design of training pro-
others being improvements in regula-
grams. Often pushed and executed by effective only
tions and incentives, in technology,
external sources, training programs
and in organizational structures), rarely
have weak local ownership and are when there are
can training alone make an institution
therefore hobbled by a lack of incen-
more capable. accompanying
tive to devote efforts and local re-
sources to the programs. Training is Normally, training is effective changes in
still frequently used as a device to only when there are accompanying rules and
avoid unpleasant but necessary per- changes in rules and incentives,
sonnel decisions, and as a refuge for in the organization, or in technology incentives
non-performers. Even when well run, (especially in information and commu-
government training programs are of- nication technology)—or a combination
ten unrelated to employees’ actual or of all these elements of capacity
prospective tasks, giving them new building. Thus, some scholars (Franks
skills that quickly atrophy from lack of 1999) distinguish between capability
use. Moreover, in the absence of effi- and capacity. Capability is determined
cient procedures or adequate incen- by the skills and abilities of the
tives, training only generates frustra- individual. Capacity, to be effective,
tion among employees. Indeed, train- is determined also by the
ing programs have been one of the institutional and resource context. 17

Chapter 3
 Punjab’s Capacity Building Diagnostic Analysis

Thus, training will never fix a ees to career advancement. For the
dysfunctional system. If employees are individual employee, training may help
ill-equipped to discharge their tasks, to improve capability, but cannot do
they may have to be reassigned to much to improve motivation, which
tasks that are better suited to their depends on many other factors. Train-
skills. If they perform poorly because ing is thus only one of the determi-
they are unaware of the performance nants of performance, and if attention
standards, these standards should be is not paid to the contextual factors,
Training will clarified and enforced. If weak per- training may not necessarily be effec-
formance is linked to failure to reward tive. Decentralization requires training
never fix a good work and dispense sanctions for to address the skill needs of political
dysfunctional bad work, the solution is a good per- and administrative cadres in local gov-
formance appraisal and incentives sys- ernment. This must be largely a na-
system. If tem. None of these situations call for tional effort because of the uneven
employees are training per se, except as a bureau- resource base among local govern-
cratic alibi for avoiding the real issues. ments.
ill-equipped to Training in the province is beset by
3.5) Lack of Effective Training
discharge their problems related to the supply-driven
For training to be effective, it orientation of most training for govern-
tasks, they may ment personnel, low priority given to
has to planned and executed properly.
have to be reas- Training is warranted if employees such training, its fragmented approach,
have inadequate skills for the jobs and deficiencies in the staffing and
signed to tasks where they are best placed, and if the organization of training centers. The
new skills will actually be used right training infrastructure is fragmented
that are better
after the training, or if specific skills and poorly utilized. The content of
suited to their are needed for career advancement or training is often irrelevant to the cur-
for the educational upgrading of a rent needs of government and the em-
skills
workgroup. Therefore, the effective- ployees.
ness of training depends on the train-
3.6) On the Job Training
ing policies and institutions, the educa-
tion system, the existing stock of edu- On-the-job training is often
cated manpower, the personnel poli- overlooked because it is done differ-
cies and systems, and the administra- ently in different agencies and is infor-
tive culture (Paul 1984). mal. In addition, on-the-job training is
The first three factors relate to rarely seen as a responsibility of super-
the amount and quality of training. The visors, who get no credit for perform-
last two factors create more demand ing this function. However, as in the
for training, as employers look forward case of expatriate technical
18 to improved performance and employ-

Chapter 3
Punjab’s Capacity Building Diagnostic Analysis

assistance, training of subordinates or the right level. However, mandatory

of counterparts should be considered rules for training often do not take into
an integral part of job responsibility account the capability of training insti-
and rewarded as such (or penalized tutions, budget limitations, or the abil-
when it is not provided). Similarly, the ity of departments to spare employees
importance of informal coaching and for long spells of training. Often, the
counseling should not be underesti- mandatory training before promotion is
mated, although counseling and coach- in fact taken long after promotion, de-
ing need particular skills and attitudes, feating the purpose of the require-
for which the supervisors themselves ment. The problem of inadequate
may need training. Rotation can give training facilities is sometimes ad-
employees a broader perspective on dressed by ad hoc training programs To assure the
the working of the ministry where they for individual development, but this
relevance and
are employed or of several ministries, could lead to inequitable outcomes
and new skills through exposure to among employees. good quality of
different tasks as well as revitalize their
interest.
3.8) Absence of a Training Road training,
Map
departments
3.7) Relevance of Course Content
To assure the relevance and
should develop
Traditional training, consisting good quality of training, departments
of classroom lectures, discussions, and should develop a training road map for a training road
case studies, is usually delivered by every employee, showing clearly the
map for every
external institutions. It is indispensable type of training he needs at different
when seeking to acquire a coherent set points in his or her career. This plan employee
of new skills, or to reach higher educa- should be discussed and agreed upon
tional levels. No generalization about between the supervisor and the em-
the effectiveness of traditional training ployee, and reviewed at the end of
is possible. In developing countries, every year. In practice, this does not
practical problems are frequent. There often happen. At a minimum, however,
is rarely an effort to identify the skill training requests and requirements
and level of preparation of participants, should be among the topics discussed
or to consult the client agencies be- during the periodic personnel evalua-
forehand. Unlike college and university tion.
students, who can be assumed to meet
3.9) Lack of Monitoring and
certain common standards, govern-
Evaluation
ment employees are generally a het-
erogeneous audience. It is therefore No monitoring and Evaluation
more difficult to define program con- of training takes place in the present
tent, and to pitch lectures at 19

Chapter 3
 Punjab’s Capacity Building Diagnostic Analysis

system of training. In order to impart (TMAs) in towns and Union Administra-

training which is effective and can ac- tions (UAs) in villages. This has led to
tually help in building the capacity of redefinition of responsibilities along
the officers as well as of the depart- functional lines which in public policy
ments in which they are working, it is formulation and strategic management
necessary to properly plan the training lies with the provincial governments
courses. This planning should include and social service delivery and imple-
not only selecting which officers need mentation responsibilities are the do-
what training but should also encom- main of the district governments.
pass the aspects of monitoring and
evaluation. The training courses should The intent is to devolve politi-
be closely monitored and after holding cal power and decentralize administra-
There is a
these, proper evaluation of these tive and financial authority for im-
challenge in courses should be conducted. There proved governance, effective delivery
are no such practices going on in the of social services, and transparent de-
meeting
Government of Punjab and training is cision making through institutionalized
citizens’ expec- therefore mostly misdirected. participation of the people at the
grassroots level. The new system is
tations on the 3.10) Current Changes in the designed to bring decision making
one hand and Structure of the Government of closer to beneficiaries of public ser-
Punjab vices; ensure citizens’ involvement and
filling large oversight in planning and implementa-
Local Government (LG) System
capacity gaps tion; and give a greater voice to
in Punjab has been established under
women, peasants, laborers, and mar-
on the other the Punjab Local Government Ordi-
ginalized population groups. Devolution
nance (PLGO) 2001. Under the Ordi-
of administrative and financial powers,
nance a number of new offices have
followed by the appropriate empower-
been created to perform different func-
ment, staffing, and resource allocation
tions. These offices have been as-
to LGs, is expected to deliver better
signed certain powers and responsibili-
public services like health, education,
ties, which they are required to exer-
and water supply and sanitation. Devo-
cise in accordance with the provisions
lution is, however, in a transitional
of the Ordinance. The LG system has
phase and transfer of powers is still
replaced the old system of provincial
continuing.
administrations at the division, district,
and tehsil levels. The new system, The Provincial Government
regulated under the Punjab Local Gov- (PG) and LGs are clarifying their roles
ernment Ordinance 2001, provides for and responsibilities and devising
much more autonomous LGs in dis- mechanisms to build capacity at vari-
20 tricts, Tehsil Municipal Administrations ous levels.

Chapter 3
Punjab’s Capacity Building Diagnostic Analysis

There is a challenge in meeting citi-

zens’ expectations on the one hand
and filling large capacity gaps on the
other. With a paradigm shift in the
power structure, there are tensions
both between the provincial- and local
government-elected representatives
and within LG tiers, which need to be
carefully addressed through appropri-
ate management of intergovernmental
relations. The capacity of LGs to un- While the LGs
dertake their new roles and responsi-
bilities has to be strengthened. are now

While the LGs are now respon-

responsible for
sible for the delivery and management the delivery and
of social services, their administrative
and financial authority is not commen- management of
surate with the assigned responsibility. social services,
PG has a key role in supporting LGs by
(i) providing TA for capacity building; their adminis-
(ii) establishing policies, procedures, trative and
and minimum standards for service
delivery; (iii) ensuring timely transfer financial
of sufficient fiscal resources; and (iv)
authority is not
undertaking monitoring and evaluation
to ensure minimum standards of ser- commensurate
vice and improved service delivery.
with the
The PG has a critical role in providing
the enabling environment for the LGs assigned
to improve their functional, financial,
and managerial autonomy in line with
responsibility
the PLGO, so as to empower LGs to
improve social services.

21

Chapter 3
Institutional Framework of Capacity Building in Punjab

T
raining institutions ment,
available in the Govern-
it lists the following functions:
ment of the Punjab are a. Periodic Review of the organization
not capable of imparting the level of
staff, functions and procedures of
training that is the need of the chang- the Department, Attached Depart-
ing circumstances. Government of the
ments and Subordinate Offices and
Punjab needs to forge twining ventures suggestions for improvement
with other training institutions the
thereof;
world over. Exposure visits, exchange b. improvement of general efficiency
of training faculty, training of trainers Exposure
and economic execution of Gov-
and civil servant’s course /academy ernment Business;
exchange agreements should be given
visits,
c. advice regarding proper utilization
importance as these will afford oppor- of stationery and printing re- exchange of
tunities to learn from mutual experi- sources of the Government;
ence and improve upon the institu-
training faculty,
d. Training in Organization and
tional weaknesses and drawbacks that Method; training of
the capacity building component of the
e. Suggestions scheme;
public sector is suffering from. Such an trainers and
f. Preparation of Manuals;
arrangement will enhance the capacity civil servant’s
g. Career pattern of Government em-
and tone up the managerial skills and ployees;
expertise of the civil servants. In GoPb, course / acad-
h. Review of the staffing pattern of
the following institutional framework is Government Department; emy exchange
available for HR and CB activities. An
i. Simplification of forms and proce-
account of these institutions is given dures;
agreements
below:- j. Departmental examinations; should be given
4.1) Services and General Admini- k. In-service/pre-service training of
ministerial employees and Section importance
stration
Officers (probationers);
To develop the capacity and l. Matters connected with training of
cater to the training needs of the pro- the National Institute of Public Ad-
vincial civil servants, an institutional ministration, Lahore and Karachi
arrangement is given in the Rules of and Pakistan Academy of Rural
Business prescribing specified roles Development Peshawar (Divisional
and defining functions allotted to each level courses);
of the departments. Explaining the role m. Matters connected with National
of O & M (Organization and Meth- Institute of Public Administration,
odology) wing of the Services Lahore; and
& General Administration Depart- n. O & M Assignments.
23

Chapter 4
 Institutional Framework of Capacity Building in Punjab

These functions need to be performed the following functions:

by the O&M wing of S&GAD. But over 1. Train the Government officers and
time, these functions have lost their officials
importance for the Wing and no special 2. Research house for policy matters
efforts are being made for achieving 3. Focal point of all internal and ex-
the same. No career planning of the
ternal training for the Civil Ser-
government employees is conducted
vants and employees of Provincial
and most of the training imparted is
Government for training need as-
hap hazard and without any direction.
sessment in consultation with the
Thus there is need to activate the O&M
concerned departments and train-
Wing for ensuring fulfillment of all
ing institutes
training needs of the Provincial Ser-
4. Clearing house of all management
vices.
Any kind of related consultancies and out-
Establishment Wing of
sourcing of any management func-
placement S&GAD is responsible for capacity
tion
building activities. Any kind of place-
policy should 5. Create an effective linkage with
ment policy should be linked with Ca-
the private sector so that the bu-
be linked with pacity Building and Career Progression.
reaucratic structure, processes and
This will lend continuity and synergized
Capacity Build- procedures absorb suitable pat-
efforts for training which will then lead
terns and practices from that sec-
ing and Career to career progression through better
tor
placement of skilled officers.
Progression 6. Act as engine of re-engineering of
4.2 Management and Professional process and procedures absorb
Development Department (MPDD) suitable patterns and practices
from that sector.
The Punjab government has
7. Train the Probationers of the Pro-
established a Management Professional
vincial Civil Service or its successor
Development Department (MPDD)
service cadre
since 2002 with the clear-cut objective
8. Undertake resources generation
of introducing modern training facilities
for itself through extending suit-
to meet the enhanced delivery needs
able useful and acceptable training
of the government. It aims at develop-
and project consultancy for the
ing human resource by arranging to
private sector
impart the required capacity building
9. Prepare and implement modern
training keeping in line with interna-
comprehensive concept of intern-
tional standards.
ship based on merit and competi-
While elucidating the role of tiveness
24 MPDD, Rules of Business encompass 10. Effective collaborative

Chapter 4
Institutional Framework of Capacity Building in Punjab

arrangement and linkages with engaged with this capacity building

relevant institutions both in the challenge. So, it is important to share
public and private sectors this capacity building crunch with the
10. External evaluation of training ac- development partners. In the wake of
tivities of other training institutes devolution of power, the whole ambit
in the Province of social service delivery has been
Following the changing circum- changed and generally there is a felt
stances both globally as well as at need to building capacities of officers
home, and after the formation of Local at the district, tehsil and union levels
Governments, there is need for in- to help materialize the objective and
CMU is
service and on-going training ad- goals of this program. For the purpose,
dressed through proper district policy the creation of district service cadre mandated to
to discharge management and service has been billed to be a viable option
delivery responsibility in the province. and work towards this end is already
identify and
However, MPDD is still in its inception underway. foster
stages and the faculty as well as the
4.4) Other Institutions and Pro- institutional
Department itself ahs not been able to
jects
completely satisfy the training needs of and
the Punjab. In addition to the roles of the
organizational
institutional arrangements provided in
4.3) Office of DO (HRM)
the formal public structure, there are a changes in the
Under the changed circum- number of initiatives being spear-
stances, introduction of reforms and headed by various organizations and
government
the launch of Local Government Sys- programs which among others include departments
tem, it is imperative that the dysfunc- DSP and PRMP.
tional office of D.O (HRM) be made
4.4.1) Change Management Unit
operationalized with high quality and
dedicated staff and facilities. The train- Government of Punjab has
ing should be imparted strictly on spe- established Change Management Unit
cific lines and modules developed by (CMU) accountable to the Chief Secre-
MPDD. These offices of D.O (HRM) tary with the help of Punjab Resource
would be required to be linked with Management Program (PRMP). It is
MPDD to provide necessary support in mandated to identify and foster institu-
terms of capacity building challenges tional and organizational changes in
of the respective districts. the government departments
Multilateral donor agencies, e.g., World by harnessing the home-grown experi-
Bank, ADB possess the required insti- ence and best international practices.
tutional memory which may also be
25

Chapter 4
 Institutional Framework of Capacity Building in Punjab

4.4.2) Project Management Unit civil service mode, the Punjab govern-
ment has recently notified contract
This is an organization which is
policy which seeks to requisition ser-
responsible for monitoring of all the
vices of qualified persons to be utilized
foreign funded Projects under way in
for special tasks. This is being experi-
the Government of Punjab. This Unit is
mented on temporary basis in a limited
also busy in devising training programs
array of departments, e.g., Information
for the officers of the Government of
Technology.
Punjab in order to equip them with the
Implementation of devolution plan en-
desired skills and knowledge in order
PMS officers visages a gigantic role for local govern-
to make them face the challenge of the
ment offices. Local Government
are being changing times.
Training Academies have been re-
raised and 4.4.3) Decentralization Support structured and properly staffed to im-
Program (DSP) is progressively part training in all the fields of local
nurtured to governance matters. National Build-
working to meet the situation created
by devolution and has organized work- ing Departments, i.e. engineering
respond to the
shops and seminars to highlight miss- academies are also training engineers
redefined ing links and building the capacities of to become active contributors in their
the officer discharging responsibilities respective spheres. IT Board is con-
responsibilities
at the respective tiers of government. ducting training of its officers in re-
both in the field quired IT skills. Directorate of Staff
4.4.4) Provincial Management Development (DSD) is yet another
as well as in the Service project initiated by the Punjab govern-
secretarial ment to groom the school and college
Government of the Punjab
teachers in such a manner that they
settings while heeding the new administrative
should be well-equipped to teach ac-
roles and responsibilities has merged
cording to the modern standards of
together and created a unified cadre of
education. There is emphasis on nur-
the Executive and Secretariat branches
turing proper attitude and cultivation
of the provincial civil service and
of a passion for professionalism. Agri-
named it Provincial Management
culture, Livestock, Health, Irriga-
Service (PMS). They are being raised
tion and Power, Nursing training
and nurtured to respond to the rede-
institutes and Water Management
fined responsibilities both in the field
Institutes also train their officers.
as well as in the secretarial settings. It
There are also private sector insti-
will help afford similar training to the
tutes imparting world class training
recruited officers to discharge varied
but public sector should forge partner-
and miscellaneous nature of jobs. As
ship with it in order to fine-tune its
26 against the traditionally covenanted
training facilities.

Chapter 4
Capacity Building Initiatives of PRMP

For developing a Framework (GoPb) has developed an integrated

that undertakes analysis of training Capacity Building program for its offi-
needs of the provincial service cadres, cers in the areas mentioned above
the role of the existing institutional which will equip them with suitable
arrangement needs to be made more professional skills to undertake the
meaningful and focused. Government upcoming challenges. Training & ca-
of the Punjab has embarked upon ma- pacity building of officers of the provin-
jor reform program under Punjab Re- cial government is therefore a major
source Management Program [PRMP]. component of revised PC 2 as well as For developing
The program seeks to improve service revised PRMP TA Loan. The main
a Framework
delivery with particular emphasis on ingredients of the training initiatives
pro-poor sectors through structural would be: that undertakes
reforms in systems and processes to — Assessing the capacity gaps and
effectively manage public resources improvements required to improve
analysis of
and creation of enabling environment the local training institutions training needs
for the private sector. The reforms are — Identification of training facilities
underway in the following areas: (local and foreign training institu- of the provin-
A. Public procurement processes tions and resource persons) that cial service
B. Taxation system could provide quality training in
C. Contingent liabilities including pen- cost-effective manner cadres, the role
sion & GP Fund — Negotiations with the selected insti- of the existing
D. Debt management tutions/ individuals for tailored
E. Expenditure tracking training programs as well as the institutional
F. Medium Term Budgetary and De- cost of training
arrangement
velopment Frameworks
Way Forward-roadmap for Pun- needs to be
G. Improving service delivery for so-
jab’s Training Policy
cial sectors including health, edu-
Capacity Building Framework envisages made more
cation and water supply & sanita-
the road map for training policy of the
tion, housing, livestock, SMEs etc meaningful and
Government of Punjab. The Training
H. Private sector development
I. Institutional strengthening/
and CDI would be developed in an in- focused
novative manner. Some of the pro-
restructuring (Finance, P & D, E &
posed areas are given below:
T, BOR, S & GAD etc)
J. Public sector organizations • Developing long term partnership
K. Civil services (linkages)
L. Urban planning • Engaging Resource Persons
To ensure sustainability of these • Capacity Development Courses
reforms Government of the Punjab
27

Chapter 5
 Capacity Building Initiatives of PRMP

• Courses at High Quality Local Training needs must be identi-

Training Institutions [such as NI- fied at three interrelated levels: na-
BAF, LUMS, CMD, NIPA] tional, organizational, and individual. A
broad assessment of skill availability,
• Module Development
new skill requirements, and therefore
• Facilities for IT Enabled Learning
skill gaps and training needs should be
• International Courses undertaken at regular intervals, so that
• Exposure Visits a menu of training options may be de-
Some policy plans under Provincial veloped, and the training institutions
Public Sector Capacity Building Pro- have the information essential for their
By undertaking
gram [PPSCBP] are listed below. curriculum and staffing plans. Training
training need needs assessment includes general
5.1) Training Need Assessment
training needs, needs based on ob-
assessment of
Punjab Capacity Building served discrepancies in performance,
GoPb, depart- Framework encompasses the training and training to fill anticipated skill
and capacity building needs and train- gaps. The government may require
mental training
ing assessment analysis of the Punjab general training for all the employ-
priorities will be government departments. It aims at ees in common areas such as relations
identifying key areas of policy formula- with the public or the use of com-
determined and puters. But even for general treatment,
tion and execution and decision-
addressed making in each department/ the specific needs of the employees
organization and correspondingly seeks must be assessed in relation to their
through capac- work context. The second type of as-
to build and develop capacities where
ity building the requisite skills are badly needed. sessment, based on observed per-
This is possible only after conducting formance discrepancies, generally
interventions shapes most training programs. The
comprehensive training needs assess-
ment (TNA). By undertaking training third type of assessment is becoming
need assessment of GoPb, departmen- increasingly common. It is related not
tal training priorities will be determined related to present performance dis-
and addressed through capacity build- crepancies but to future skill needs
ing interventions at the appropriate anticipated from technological ad-
levels. Moreover, under PRMP compre- vances or changes in strategic goals,
hensive Training Needs Assessment of e.g., computerization, or the new skills
critical departments of the GoPb is also required by decentralization.
being carried out. This TNA will be A good training needs assessment
utilized later on in finalizing the must rely largely on the views of all
specific training courses to be taught major stakeholders including the public
to civil servants. managers and the potential trainees.
28

Chapter 5
Capacity Building Initiatives of PRMP

Also, the statement of needs must be College, Singapore (CSC) are being
relevant and quantifiable, and not signed by GoPb for training of officers.
vague or subjective. CSC ia a world class public sector train-
ing institution which has a commend-
There is an acute gap be-
able reputation for providing high qual-
tween the required and desired
ity training to Singapore civil servants
levels of knowledge, skills and train-
as well as government officers from
ing among the officers of GoPb. In to- GoPb has
other developing countries. In line with
day’s world, the districts require a high signed a Memo-
this, GoPb has signed a Memorandum
level of professional manpower that
of Understanding (MoU) with the Civil
could respond to highly complex na- randum of
Services College (CSC) Singapore for
ture of assignments and their satisfac-
developing a long term capacity build- Understanding
tory consumer-focused performance.
ing partnership. This intervention is
There is dire shortage of technical
called Capacity Building Training Initia-
(MoU) with the
know-how and skills to discharge re-
tive (CBTI). The target areas include Civil Services
sponsibilities in the ever competitive
change management, public policy de-
environment which is fast becoming College (CSC)
velopment, financial management, hu-
IT-based. But most of the skills re-
man resource management, healthcare Singapore for
quired for working in such an environ-
management, etc. CSC is a world class
ment are not present in the officers/ developing a
institution which has an excellent repu-
officials of GoPb. The organizational
tation based on proven track record
mind set prevalent in the provincial long term
with high quality civil service in Singa-
settings has to change from a laidback capacity build-
pore and other developing countries.
complacent attitude to one which is
CSC has been working with Common-
proactive, motivated and revolutionary. ing partnership
wealth Secretariat and has very strong
PRMP under Capacity Building understanding of systems and proc-
and Training Interventions is conduct- esses of countries in the common-
ing a detailed TNA to be able to find wealth. Under the agreed MoU, CSC &
out what kind of training is required Government of the Punjab would final-
where. Civil Services College, Singa- ize professional development courses
pore is also helping GoPb to conduct for the officers of the GoPb. To maxi-
this TNA of some selected Depart- mize the use of available resources, a

ments. majority of the courses conducted by

CSC will be delivered in Lahore while a
5.2) MoU with Civil Service Col- small number of courses will be carried
lege, Singapore out in Singapore. Similar MoUs will also
be signed with other international
Agreements with institutions of
training institutions as well as with lo-
international repute e.g. Civil Service
cal universities/ institutes of repute. 29

Chapter 5
 Capacity Building Initiatives of PRMP

The CBTI will employ a two- iii. Determine generic competencies

track or two-prong implementa- for each department.
tion methodology. Track-I will focus iv. Determine competency elements
on immediate training needs of four and performance criteria.
key departments with an v. Identify training needs of each
eye on required future institutional department keeping in view of
responses of the provincial govern- specific departmental objectives/
ments departments via a competency details.
based approach. Track-II will focus on vi. Propose, devise, develop and de-
developing framework for building the sign at least 4 comprehensive
training capacity of the MPDD.based courses for delivering training to
Track (I) will approach. Track-II will focus on devel- around 60 staff members of each-
oping framework for building the train- department.
focus on capac- ing capacity of the MPDD. vii. Outline training impact analysis
ity building of with quantifiable outcomes.
5.2.1) Track-I
viii. Arrange to impart training on the
four key depart- This track will focus on capac- criteria developed in the prescribed
ity building of the following four key courses.
ments of the
departments of the Government of the ix. Conduct training evaluation to as-
Government of Punjab:- sess level of transfer of learning to
i. Planning and Development Depart- the workplace.
the Punjab
ment (P & DD) x. Develop training audit mechanism
ii. Finance Department Teams of consultants have been con-
iii. Services and General Administra- stituted which will interact with the
tion Department (S &GAD) counterpart teams from the above re-
iv. Management and Professional De- ferred Departments for developing
velopment Department (MPDD). course modules based on the training
This component of the agreement fo- needs of these Departments. CSC
cuses on revamping and building ca- teams comprise of a Team Leader, a
pacities of the above referred Depart- Deputy Team Leader, a Project Coordi-
ments of critical importance. nator, an HR expert, a Finance Expert
and Expert Trainers. Counterpart
The specific outputs required are: teams comprise of officers of the
i. Determine the business, current above Departments. All these teams
practices and operating environ- will work in coordination for developing
ment of the four key government course modules for the key Depart-
departments. ments and for delivering training to
ii. Determine the individual job duties them.
and responsibilities
30

Chapter 5
Capacity Building Initiatives of PRMP

5.2.2) Track-II viii. Recommendations for ‘Sabbatical

arrangement’ of the MPDD faculty
Track II focuses on developing
with other international training
a framework for building the training
institutes.
capacity of Management & Professional
CSC will conduct study of
Development Department (MPDD).
these Departments and will deliver:-
MPDD is the provincial department
I. TNA Report for the four selected
mandated with professional training for
departments namely P & D, Fi-
the offices of the GOP. CSC will con-
nance, S & GAD and MPDD
tribute to the capacity building of
II. Modules with teaching notes for
MPDD by providing training in Training Track (II)
the four courses delivered for each
and Development to MPDD staff and
department focuses on
resources process. The purpose is to
III. Report on training evaluation
build capacity of the MPDD and trans-
IV. Report on Training of MPDD Train-
developing a
fer know-how to the said Department
ers framework for
to conduct up to 6 training course titles
V. Report on future structure of
from Track-I to MPDD trainers.
MPDD including identification of
building the
The specific outputs required are: permanent core faculty training capac-
i. Study of business procedures, cur- VI. Report on Review of MPDD’s core
curriculum ity of Manage-
rent practices and operating envi-
ronment of MPDD. Teams of consultants have been con- ment & Profes-
ii. Review MPDD’s core curriculum stituted which will interact with the
counterpart teams from the above re- sional Develop-
focusing on its objectives and iden-
tifying learning outcomes. ferred Departments for developing
ment Depart-
iii. Design the core curriculum to in- course modules based on the training
clude proposed improvements and needs of these Departments. CSC ment (MPDD).
changes. teams comprise of a Team Leader, a
iv. Review structure of MPDD and Deputy Team Leader, a Project Coordi-
propose criteria for selection of nator, an HR expert, a CB specialist, a
faculty position/trainers both per- Finance Expert and Expert Trainers
manent and visiting. etc. Counterpart teams comprise of
v. Assist with selection of trainers for officers of the above Departments. All
MPDD these teams will work in coordination
vi. Train MPDD trainers to conduct up for developing course modules for the

to 6 training course titles. key Departments.

vii. Suggest recommendation for twin-
5.2.3) Time Schedule
ing arrangement between the
MPDD and the other elite training The study is expected to be
institutions of the world. completed by the consultants in 31

Chapter 5
 Capacity Building Initiatives of PRMP

Twelve (12) calendar months from the Training Programs)

date of commencement of services.
The Consultants are required to com- In order to meet the chal-
plete the study and submit the final lenges of reforms and to ensure sus-
report within this timeframe. The de- tainability of these reforms, it is none-
tails are contained in the Contract and theless imperative that capacity of the
TORs. officers is enhanced to perform func-
tions and discharge responsibilities
5.2.4) Project Management suitably. PRMP, therefore, has initiated
programs for training of officers (BS 17
The Team of consultants will
to 19) primarily from provincial service
work with the implementing depart-
PRMP, has cadres of various departments in rele-
ments for the purpose of completing
vant fields. One-year degree courses
initiated this assignment. PMU/PRMP (working
will be offered to these officers. These
on behalf of Executing Agency) would
courses are basically Masters Programs
programs for be responsible for management of the
of universities/ institutes of repute all
training of contract as well as coordination of the
over the world. Officers will be sent to
activities of the consultants for the
these universities for enhancing their
officers (BS 17 purpose of logistics, trouble shooting
knowledge and skills under Long Term
and any additional support. Each im-
to 19) primarily Training Program (LTTP).
plementing department has nominated
The project will be financed through
from provincial a focal person for this assignment. The
World Bank funded Public Sector Ca-
consultants interact with the counter
service cadres pacity Building Project (PSCBP) having
part team.
a total outlay of US $ 61 million that
of various has share of Government of the Punjab
5.2.5) Report Submissions
departments in to the tune of US $ 2 million. Counter-
The Consultants shall submit part funding of US$ 1m will be pro-
relevant fields to Program Management Unit, Punjab vided by Government of Punjab in local
Resource Management Program, In- currency. The program is scheduled for
ception Report, Mid Term Report, 3 years i.e. it will be completed by
Draft Final Report and Final Report June 2009.
as per given schedule. The final report
5.3.1) Training Abroad
shall include modifications in response
to the Client’s comments on the initial The Program envisages train-
draft and shall be submitted within ten ing of officers in relevant areas of
(10) calendar months after the notice study. Through the said program civil
to proceed with the above scope of servants will be sent abroad on long
work. term training program (LTTP)/degree
programs in selected areas of public
32 5.3) Degree Courses (Long Term policy, public administration,

Chapter 5
Capacity Building Initiatives of PRMP

public finance. Management, etc to will decide as to which officers have to

acquire skills, expertise and savoir-faire be allowed this scholarship facility.
CDI Committee
needed to conform to the optimal level 5.3.1.2) Surety Bond Require-
of policy performance. Areas like Irri-
will decide as
ments
gation, Health, Engineering, Accounts, to which
Engineering, Education etc are also Officers who will be sent for officers have to
included in the selected fields of study. Masters Degree courses availing the
PRMP scholarship facility will be re-
be allowed this
Disciplines, courses of internationally
reputed universities have been ear- quired to fill in a surety bond and fur- scholarship
marked for sending our officers abroad nish an undertaking as designed and facility
for training in relevant fields. enjoined upon by the Government of
Punjab.
5.3.1.1) Selection Criteria These may
5.3.1.3) Debriefing after Training Include Leader-
Officers will be selected by
Capacity Development Interventions The officers getting trained ship courses,
(CDI) Committee headed by Chairman through training programs especially courses in
Planning and Development Board with those getting training outside of Paki-
Public Sector
Secretaries of S&GAD, MPDD, Finance, stan would be issued TORs for the
P&D, Health, Education and DG CMU training programs that would include a Reforms,
as Members. Program Director, PRMP commitment to hold a debriefing ses- Management,
is Member/Secretary of the Committee. sion on return and act as a trainer of
Senior Manage-
This Capacity Building program the relevant subject through lectures in
local training institutions whenever
ment Programs,
will be housed initially in P&D Depart-
ment. PRMP will initially prepare and required to do so Project
execute the plan. Implementation will Management,
5.4) Executive courses
be through the CDI Committee headed
Financial
by Chairman P&D Board. CDI Commit- This Capacity Building intervention,
tee may allow officers to foe studying
Administration,
financed from World Bank, Punjab
any other courses from any other uni- Government as well as TA Loan also Maintenance of
versities that have not already been envisages Executive courses/ Short Accounts,
included in the of courses/ universities courses, i.e. from 1 to 6 weeks for sen- Public Policy,
recommended by PRMP/ P&D Depart- ior officers, primarily officers of BS 18
ment. Education,
and above. These include programs
The selection criteria will be which are of relevance to their current Health, Irriga-
such that officers who have a valid place of work and posting. These may tion etc
admission in any of the recommended include Leadership courses, courses in
courses from the recommended uni- Public Sector Reforms, Management,
versities may apply for PRMP scholar- Senior Management Programs, Project
ships and then CDI Committee 33

Chapter 5
 Capacity Building Initiatives of PRMP

Management, Financial Administra- well as short courses. The target areas

tion, Maintenance of Accounts, Public include Change Management, Public
Policy, Education, Health, Irrigation Policy Development, Financial Manage-
etc. The Services and General Admini- ment, Human Resource Management,
stration Department being responsible Healthcare Management, etc.
for creating capacity development
5.5.1) MPDD and Private Training
mechanism may identify training re-
Institutes
quirements. These Executive courses
can be used for filling and bridging the The focus of training & capac-
gaps in areas where there is deficiency ity building program under PRMP in-
in terms of international standards. cludes reorganization and strengthen-
MPDD needs to ing of Management & Professional De-
These courses can be conducted
be revamped velopment Department (MPDD), build-
both in universities/ institutes abroad
ing human resource and developing
as well as may be organized locally in
and reformed capacity within key provincial depart-
universities of repute. Some officers
ments including Finance, Planning &
keeping in view have already been sent for training
Development, S & GAD & Social Sector
under this program for attending Sen-
the interna- ior Management Program (SMP) form
Departments. MPDD, being the major
training institute of the provincial gov-
tional stan- Victoria University, Wellington, New
ernment, is mandated to impart job-
Zealand and for courses at Lee Kuan
dards in the need-based training to employees of
Yew School of Public Policy, Singapore.
the provincial government. Emphasis
area of training Other courses are being identified
of PRMP Capacity building interven-
which can be used to train the officers
and capacity tions is also on capacity building of
in short period of time and can give
MPDD as well as of local training insti-
good value for money.
building tutions in the private sector through
5.5) Local Training Programs partnerships. In view of the institu-
tional importance of MPDD as a pre-
Efforts are also being made by
mier public sector training institute, it
PRMP to identify relevant courses from
needs to be revamped and reformed
local universities/ institutes of repute.
keeping in view the international stan-
Discussions are underway with Lahore
dards in the area of training and ca-
University of Management Sciences
pacity building. These institutes can
(LUMS), Lahore to tailor some courses
impart training to officers for long as
for the officers of Government of Pun-
well as short courses in relevant areas
jab especially in fields of Administra-
of study.
tion, Management, and Executive MBA
etc. Other universities will also be con- The private sector training in-
34 tacted to train officers for both long as stitutes have as yet only been able to

Chapter 5
Capacity Building Initiatives of PRMP

meet some of the public sector training 5.6) Training and PMS
needs but are largely unable to provide
Provincial Management Ser-
customized training in specific areas in
vices prepare the main body of officers
line with sectoral demands. They are
who serve in the Provincial cadres in
therefore being requested to formulate
different capacities. Training of these
training modules for officers of GoPb.
officers is an important element of CB
5.5.2) Training of Officers locally interventions. Training of newly in-
through International Quality Re- ducted officers as well as the in-service
source Persons officers should be so planned and con-
ducts that they may serve the Govern-
PRMP is also
PRMP is also trying to organize
ment and the public in the best possi- trying to organ-
courses for the officers of the GoPb at
ble manner and may meet the expec-
local institutions through international ize courses for
tations of public in the changed cir-
quality resource persons. The idea is
cumstances. Core competencies re- the officers of
that instead of sending officers abroad
quired for the PMS should be taught to
in some courses which can otherwise the GoPb at
the PMS batches. Promotion should be
be organized locally, it will save extra
linked with in-service training of offi-
expenses that will be incurred in send- local institu-
cers.
ing officers abroad. Internationally re- tions through
nowned Resource persons can be in- 5.7) Long Term Training Liaisons
vited for conducting these short with Counterpart Institutes of Ex- international
courses for officers in local institutes. cellence
quality
Efforts in this regard are under way.
Training Academies of various resource
PRMP is already making arrangements
Administrative Departments should
fro holding GRID International Leader-
make log-term arrangements for train- persons
ship course at Islamabad which is be-
ing their officers and staff from insti-
ing conducted by Pakistani Resource
tutes of good reputation in the interna-
persons who have been internationally
tional market. MoUs may be signed
certified for conducting this program.
between each Training Academy and a
Approximately 30 officers will be
counterpart foreign training institutes
trained in this course and these
for exchange of faculty, students and
courses will be repeated several times
officers in order to equip them with the
every year for enabling officers of
state of the art knowledge, skills and
GoPb to equip themselves with Leader-
core competencies in their relevant
ship skills. Other courses inviting inter-
fields of study and expertise. This will
nationally renowned Resource Persons
both from within the country and from
abroad are being identified.
35

Chapter 5
 Capacity Building Initiatives of PRMP

enable the Administrative Departments hore University of Management Sci-

to gain the knowledge, skills and core ences (LUMS) has a well functioning
competencies that are required in the Case Developing Centre which has
modern world for efficient service de- considerable experience in developing
livery. Long term institutional linkages cases for corporate sector. LUMS has
may be set up with the counterpart agreed to assist Government of the
institutes through these twining ar- Punjab in developing cases for the
rangements. Government of the Punjab if three to
five qualified officers having research
5.8) Case Study Method interest and public sector experience
are attached on full-time basis with the
Memorandum of Understand-
LUMS faculty. LUMS will use services of
ing has already been signed with Civil
these officers to develop around 15
Case study Service College (CSC) Singapore for
cases over the period of ten months.
training & capacity building under
method of which CSC will initially work with Man-
No expenses will be charged by the
LUMS for such services. These cases
teaching is the agement & Professional Development
would be jointly published by LUMS &
Department (MPDD) to reform & re-
modern and the Government of the Punjab and could
structure MPDD on modern lines. On
be used by both LUMS as well as Gov-
most effective the basis of this, CSC will propose
ernment of the Punjab. To keep these
training framework for key provincial
way of officers motivated for writing good
departments. A team of CSC visited
quality case studies, LUMS has pro-
MPDD in February 2006 to assess the
training posed that Government of the Punjab
existing capacity and training facilities.
should offer these officers a reasonable
The CSC team during their visit to
amount of cash incentive.
MPDD also indicated the need for de-
veloping good quality case studies PRMP will select five officers
based on public sector experience. for the subject assignment. It is also
Case study method of teaching being considered that officers selected
is the modern and the most effective for writing cases may be allowed an
way of training. While the reformation honorarium of Rs. 50,000/- (fifty thou-
of MPDD is underway it would be ap- sands) per case, of reasonably good
propriate to initiate process of develop- quality which qualifies the LUMS stan-
ing indigenous cases in the public sec- dard. The honorarium may be admissi-
tor in Punjab that could be used to ble if the cases are approved by LUMS
train our officers. Presently there is a faculty for publication.
dearth of good cases in the public sec-
In addition, LUMS holds case
tor, which underlines the need for de-
study method workshops by engaging
veloping cases for public sector. La-
36

Chapter 5
Capacity Building Initiatives of PRMP

international experts. LUMS has re- training which is effective and can ac-
quested PRMP to co-sponsor such an tually help in building the capacity of
endeavor. Some officers of Govern- the officers as well as of the depart-
ment of the Punjab may be nominated ments in which they are working, it is
for attending such Workshops as well. necessary to properly plan the training
Subsequently these officers will be courses. This planning should include
working with LUMS faculty for develop- not only selecting which officers need
ing cases in the public sector. This in- what training but should also encom-
tervention of PRMP will enable the offi- pass the aspects of monitoring and
cers of GoPb to receive training with evaluation. What remains to be a nag-
the help of cases which are relevant to ging drawback of the present situation
their fields of work and areas of ex- is characterized by conspicuous ab-
perience. sence of feedback mechanism. There is
a need to develop a scientific feedback
5.9) Training the Trainers Without
loop so that an update on initiatives or
This is also an important element of CB policy actions from the whole array of
effective moni-
interventions being introduced by the channel could be obtained and

PRMP. This envisages the exchange of processed further to tone up the on- toring, training
knowledge, skills and training received going activity. The training courses
should be closely monitored and after
is generally
by a set of employees during a certain
training program (preferably received holding these, proper evaluation of rendered
abroad) and the same may be utilized these courses should be conducted.
PRMP is laying special focus on moni- useless
for further training the employees (at
home). toring and evaluation and efforts are
being to ensure that training once re-
5.10) Monitoring and Evaluation ceived can lend the intended benefits.
Results Base Approach -- In the
There is need to regularly monitor
results based approach, a problem is-
courses and training programs and to
sue is identified, and is broken down
evaluate the same once these have
into interrelated sub-problems. The
been completed. This is an important
goals and objectives of the proposed
part of CB policy of GoPb. Without ef-
project address this problem 'tree',
fective monitoring, training is generally
usually specified in terms of positive
rendered useless. Likewise, evaluation
and prominent outcomes of a target
is necessary to find out what is the use
group. The framework posits a logical
of a certain Program in the public sec-
interrelationship between inputs and
tor and what value does a certain
activities, outputs, intermediate objec-
course program add to the capacity of
tives or outcomes, and welfare out-
the trained officers. In order to impart
comes or impact. Such causal chain of 37

Chapter 5
 Capacity Building Initiatives of PRMP

any intervention is the key to its sys- holders in processes of reflection can
tematic monitoring and evaluation. contribute to the 'emergence' of ana-
Monitoring checks what has happened, lytical capacities and 'ownership' of the
while evaluation examines why each reforms agenda amongst the stake-
step may or may not have resulted as holders.
expected. Measurable or observable
There is a growing apprecia-
indicators at each level are specified so
There is a tion within the governments of devel-
that it is possible to determine whether
growing oping countries and development com-
or not a prescribed stage of an inter-
munity that an important aspect of
vention is materializing. However, in
appreciation public sector management is the exis-
various instances, the public sector
tence of effective ‘evaluation cul-
within the capacity building has usually been
ture’, which is considered to be one
treated as a 'collateral' objective of any
governments of interventions, which are concerned
avenue for improving the performance
of a government, in terms of the qual-
developing with improving public sector perform-
ity, quantity and targeting of the goods
ance, rather than as a goal in its own
countries and and services which the state produces.
right.
In support of this objective, the Punjab
development System Thinking Approach -- government is also working to ensure
community that Hence, in order to treat the improve- an effective policy for public sector
ment of public sector governance, the reforms through building and strength-
an important system thinking approach will also be ening the monitoring and evaluation
aspect of public employed to build upon the concept (M&E) component of major capacity
that performance and capacity are in- development initiatives under PRMP.
sector manage- terrelated but are not synonymous.
ment is the One of the central tenets of Systems
thinking school is that a pragmatic ap-
existence of proach, based on reflection of practical
experience in attempting to achieve
effective
goals, provides the best frame of refer-
‘evaluation ence for deciding 'what works, what
doesn't, and why', and is therefore the
Culture’
best guide for future decision making.
Monitoring and evaluation of experi-
ence is therefore central to systems
thinking, in so far as providing feed-
back to stakeholders on the practical
results of reforms contribute to learn-
ing. Involvement of a range of stake-
38

Chapter 5
Capacity Building Initiatives of PRMP

The following cycle of monitoring and evaluating capacity building initiative

would evolve as a result of the Monitoring and evaluation strategy envisioned by
the PRMP.

Monitoring cycle

A brief overview of how the processes and participation aspects

PRMP envisages the evaluation of ca- of the evaluation.
pacity building initiative, besides the Get the facts: What has changed?
regular monitoring, is as follows:
• Identify the changes at the output
Organize the evaluation process level, quantitatively and qualita-
(CBTI Framework) tively, of the targeted departments
• Identify each target department(s) for CD support
for PRMP capacity development Identify changes in outcomes for the
support. Public (clients/users) Identify changes
• Consider and clarify processes and in any external factors which may
participation Consider and clarify have affected changes in capacity,
39

Chapter 5
 Capacity Building Initiatives of PRMP

outputs and outcomes • Assess the technical, institutional

• Identify changes in the capacity of and financial sustainability of the
the targeted department(s) capacity and output changes.
• Identify changes in the human re- Extract lessons learned for
source inputs of the target depart- program partner, departments, and
ment(s) other key stakeholders. Such an
• Calculate and assess changes in evaluation procedure would enable the
the efficiency and effectiveness of program to produce a cycle of endoge-
the department(s) - relevance of nous evaluation system for capacity
output to envisaged outcomes. development in the provincial adminis-
Such an
trative departments that would prove
Begin analyzing: How have
evaluation sustainable beyond the life of current
changes occurred?
procedure reforms program.
• Identify, among the above factors,
would enable significant factors whose changes
together explain changes in out-
the program to puts
produce a cycle • Identify all major intentional CD
support activities from all domestic
of endogenous or international sources which in-
evaluation fluence the significant factors iden-
tified in step 9.
system for • Identify the capacity development
processes piloting the leadership
capacity
and commitment aspects in the
development targeted department(s).

Assess the effectiveness of the

PRMP CBTI support

• Assess the extent to which capac-

ity changes, changes in outputs in
the target department(s) can be
attributed to PRMP capacity devel-
opment support and to what de-
gree to other factors.

Reach conclusions: Why have

changes occurred, what can be
learned?
40

Chapter 5
Conclusion

C
apability building, This Framework encompasses
which is central to or- not only training of individual officers
ganizational perform- but also of the training academies and
ance, requires a systematic manage- institutes of Punjab which may be
ment approach to learning and devel- turned into centers of excellence.
opment as an integral part of work-
The main ingredients of the
force planning. In the foregoing, it has Punjab
Training and CDI includes a detailed
been clearly seen that the need for
Training Needs Assessment (TNA) of government is
Capacity Building and training of offi-
selected provincial government depart-
cers cannot be over-emphasized for a aware of the
ments for capacity building in line with
better governance and high quality
their functional responsibilities, final- paradigm shift
service delivery. PRMP Capacity Build-
ization of training methodology, train-
ing Framework aims at preparing an
ing schedule and identification of train- from
over-arching policy plan for taking ca-
ers/ training institutions/facilities, iden- classic public
pacity building initiatives and to ensure
tification and procurement of services
the relevance and utility of these pro-
(institutions/ firms and individuals) for administration
grams in the current public sectors
the capacity development interven- to New Public
scenario. Human resource develop-
tions, to conduct TNAs, develop train-
ment remains to be the crucial ele-
ment to deliver and realize the fruition
ing modules, deliver training compo- Management
nents.
of decentralization and devolution of (NPM) and is
powers to the Local Governments. Management and Professional setting
Development Department, which is
Sub- Program 2 pays special
being modernized with the assistance foundations to
emphasis on Capacity Building compo-
of Civil Service College, Singapore, is
nent of PRMP especially in Sub- follow the new
fast becoming cynosure nursery for
programs 2 and 3. The capacity build-
ing framework encompasses all as-
meeting the capacity building require- international
ments of the provincial employees.
pects of training that need to be taken model of public
Punjab government is aware of the
into consideration for ensuring quality
paradigm shift from classic public ad- management
service. It lays stress on conducting
ministration to New Public Manage-
Training Needs Assessment and tries
ment (NPM) and is setting foundations
to fulfill these needs by providing for
to follow the new international model
twining arrangements with Interna-
of public management and to produce
tional as well as local institutes and
efficient and effective public
training academies of repute. MoUs
managers. Training alone cannot cor-
with international universities have
rect a dysfunctional system. For ca-
been signed and preparations for more
pacity building process to succeed,
such understandings are under way.
41

Chapter 6
 Conclusion

there is a need to change the organ-

izational culture and modulate it into a
friendlier and wholesome environment
to flourish where the government
could reap results of performance. The
training/capacity building interventions
The training/ should soon be followed by change
and reform in action environment to
capacity build- make the acquired skills relevant and
preventing them from degeneration
ing interven-
over time. The final component of a
tions should systematic training process is the
evaluation of training efforts. The ca-
soon be
pacity development intervention under
followed by the PRMP will be closely monitored and
regularly evaluated to ensure that it
change and meets Program objectives and goals.
reform in action
environment to
make the
acquired skills
relevant and
preventing
them from
degeneration
over time

42

Chapter 6
 Punjab Resource Management Program
Planning & Development Department
Government of the Punjab
Tel (92 42) 9200508 . 7580091 . 7581173 . URL: www.punjab-prmp.gov.pk