Fay Chung, Director of the United Nations Educational, Scientific
and Cultural Organisation (UNESCO) International Institute for
Capacity Building in Africa (IICBA)
Definition of capacity building
Capacity building has been a key area of work over the past four
or five decades in the Commonwealth. However, despite the monumental
efforts to build up capacities, it is evident that in some countries,
capacities are still low and the institutions responsible for
professional training and for education may be woefully weak.
One of the reasons for this has been the
concentration on training individuals rather than on strengthening
institutions. Hundreds of thousands of individuals from developing
countries have been trained both within their own countries and
overseas in the past decades. A large proportion of these have
migrated to industrialised countries. An estimated 21,000 Nigerian
medical doctors are said to be in the United States for example.(1)
Those who have remained at home may be unable to make a difference,
and may in frustration join the brain-drain sooner or later. The
reasons for the impotence of the intelligentsia and professional
classes in many developing country are complex and cannot be properly
analysed in this paper, but one common reason is the politicisation
of appointments so that key positions are retained by party loyalists.
By concentrating on the institutions charged with the tasks rather
than on individuals, whatever their political loyalties, capacity
building can ensure that the institutions themselves are strengthened.
Another reason for the weakness of institutions
has been the emphasis by both countries and donors on capacity
building as physical capacity, in particular in terms of construction
of buildings and the provision of equipment. Many fine buildings
have been constructed; obsolete and little used equipment can
be found all over the developing world, but the activities and
functions of the institutions may have been ignored. This emphasis
on the hardware rather than on the software of institution building
comprises another of the reasons why capacities remain weak.
Definition of institutions
Since this paper places emphasis on institutions, I shall try
and define what is meant by the term. Institutions can be defined
in two ways: firstly as the underlying and established objectives,
values, processes, and procedures that are usually followed in
the implementation of programmes; and secondly as the actual establishments
in charge of the implementation of programmes, consisting of the
personnel, their skills and experiences, their mission and activities.
'Institution' defined as conceptual and cultural
superstructure
'Institution' as understood in the first sense covers the area
of human institutions and their underlying values such as marriage,
justice, human rights, property ownership, etc. These are the
'superstructure' of society embodying the cultural values of a
society, and the established norms to be followed in both day-to-day
functions as well as in longer term goals. 'Institutions' in this
first sense are, on the one hand very stable, with the survival
of customs and values for centuries, and on the other hand, always
dynamic in that they are always adjusting to political, social
and economic changes within the society. Moreover sometimes customs
appear to be the same as centuries ago, but may have in reality
totally changed their functions. An example of this is the bride
price in traditional African society, with the passage of cattle
being a way of cementing social relations. Today the bride price
has acquired a more commercial value, linked to the legal and
economic position of women.
'Institutions' defined as establishments
Institutions defined as 'establishments' include political institutions
such as political parties and parliament; economic institutions
such as banks, farms, industries and companies; religious institutions;
educational institutions such as universities, colleges, and schools;
and community institutions such as families and communities. These
"establishments" have physical facilities, staff and
functions. One of the most important of these institutions is
government itself.
Combining both forms of institutions
Institutions usually incorporate both meanings of the word. Thus
a parliamentary democracy has a physical existence, with personnel
and functions clearly defined. But at the same time the institution
of parliamentary democracy covers the underlying values and processes
which are accepted by all those working within the system. Institutions
become dysfunctional when there is no foundation of shared values
and procedures, for example where feudal value systems are combined
with a political democracy. Feudalism and parliamentary democracy
are in fact contradictory institutions. These contradictions become
evident when landless tenants are constrained to vote for their
landlord in parliamentary elections. Because the tenants depend
on the land for their livelihoods, they cannot afford to offend
their landlord, even though the landlord does not represent their
interests. This is one reason why parliamentary elections in Pakistan,
for example, turn out to be less democratic than military dictatorships.
Education can also be seen as an institution
in both senses: education comprises certain objectives, values,
processes and outcomes. It can take place under a tree or through
the internet. Educational institutions, in the second definition,
are the actual establishments such as schools, colleges, universities,
curriculum development centres, supervisory departments, etc.
Capacity building as institutional
strengthening
Capacity building on the foundation of the two definitions of
institutions would require an in-depth analysis of the underlying
values as well as of the more technical processes. A purely technical
solution, however excellent, will fail if it does not take into
account the objectives and relationships which form both the foundation
and the cement of that society.
Moreover individuals function within their
institutional systems. Unless those systems value the new knowledge
and skills that the individual brings home, the newly acquired
capacities cannot be put into practice. Thus in building up capacities
it is essential to look at the institutions themselves.
Moreover, the institutions themselves are
dynamic. Individuals or groups of individuals may be able to transform
their institution. However they may only be able to do so if they
can persuade the majority of participants that change is beneficial.
And they would need the moral, technical and physical capacities
to bring about this transformation.
Building up critical mass within the institution,
whether this critical mass is in terms of moral support or in
terms of shared technical skills, is of critical importance in
capacity building. Institution building and institution strengthening
are therefore the keys to capacity building.
Capacity building of educational
institutions
The UNESCO International Institute for Capacity Building in Africa
(IICBA) was established to strengthen educational institutions
working in teacher education, curriculum development, educational
planning and educational management in Africa. It has begun its
tasks by concentrating on teacher education institutions. Teachers
are key personnel in any education system. They can provide either
an archaic or an up-to-date form of education. They can foster
traditional values or modern values. They can be technologically
obsolete or on the cutting edge of technological innovation. The
institutions in which they are trained are therefore key institutions.
Teacher education institutions in Africa
vary in quality and experience. Some primary school teacher training
colleges may concentrate on mother tongue literacy and numeracy.
Teacher trainees may only have primary education or two years
of secondary education. On the other extreme, some secondary school
teacher training colleges may be offering university level courses
which may have little link to the real life situation of their
pupils. This may have been relevant at a time when perhaps four
per cent of the age group had access to secondary education, but
may be unsuitable at a time when countries have realised that
modern forms of development require a much larger percentage at
secondary school level.(2) Colleges may have limited access to
up-to-date research and development in their disciplines. They
may have little access to information and communication technologies.
Following a needs assessment of participating
institutions, teacher education establishments have been linked
through an internet based network. This network offers degree
and non-degree level courses, mainly through distance education
and short institutes. The intention is that colleges which wish
to update in a particular area would allow all their staff to
update over a period of five to ten years. Distance education
offers the opportunity of massification of training, thus attaining
critical mass within an institution. Moreover, combined with information
and communication technology and short face-to-face sessions,
distance education has the potential for improving the quality
of the curriculum. In addition IICBA seeks to provide courses
on CD-rom, the idea being that all the teachers in a school can
participate in a course which they think is valuable.
Access to library materials is limited by
high cost and low budgets in the majority of educational institutions
in Africa. However at the age of the internet becoming a huge
library, it is possible to provide access to public information
through simple technologies such as videos, diskettes and CD-roms.
The internet itself cannot presently be accessed by most educational
institutions because of the low level of connectivity combined
with high cost in Africa. However technological changes which
will make internet affordable are likely to change the situation
over the next decade.
Finally there are islands of excellence all
over Africa and worldwide. These centres of excellence can, through
the establishment of networks, provide services to sister institutions.
An example of this is the use of the Indira Gandhi National Open
University (IGNOU) courses on distance education by Commonwealth
universities through the Commonwealth of Learning in Vancouver.
IICBA is also making these courses available to non-Commonwealth
countries in Africa.
Electronic networks also allow joint programmes
to be undertaken by institutions across the world. Thus laboratories
in a developing country faced with the tremendous challenge of
doing groundbreaking research without access to the sophisticated
laboratories available in industrialised countries, can today
work jointly to solve problems. The International Livestock Research
Institute (ILRI) in Addis Ababa has, with the help of UNESCO,
initiated an exciting partnership on agricultural research. Capacities
in developing and industrialized countries can thus be improved,
with research work becoming more relevant to real life problem
solving.
Conclusion
Capacity building today needs to emphasise institution building
and strengthening. It needs to aim as developing critical mass
in order to be effective. It needs also to link up with sister
organisations across the world in order to benefit from comparative
advantages and up-to-date research and development. Electronic
media offers the possibilities not only of electronic libraries
but also of virtual laboratories.
Capacity building as strengthening institutions
Fay Chung, Director of the United Nations Educational, Scientific
and Cultural Organisation (UNESCO) International Institute for Capacity
Building in Africa (IICBA) A
definition of capacity building
Capacity building has been a key area of work over the past four
or five decades in the Commonwealth. However, despite the monumental
efforts to build up capacities, it is evident that in some countries,
capacities are still low and the institutions responsible for
professional training and for education may be woefully weak.
One of the reasons for this has been the
concentration on training individuals rather than on strengthening
institutions. Hundreds of thousands of individuals from developing
countries have been trained both within their own countries and
overseas in the past decades. A large proportion of these have
migrated to industrialised countries. An estimated 21,000 Nigerian
medical doctors are said to be in the United States for example.(1)
Those who have remained at home may be unable to make a difference,
and may in frustration join the brain-drain sooner or later. The
reasons for the impotence of the intelligentsia and professional
classes in many developing country are complex and cannot be properly
analysed in this paper, but one common reason is the politicisation
of appointments so that key positions are retained by party loyalists.
By concentrating on the institutions charged with the tasks rather
than on individuals, whatever their political loyalties, capacity
building can ensure that the institutions themselves are strengthened.
Another reason for the weakness of institutions
has been the emphasis by both countries and donors on capacity
building as physical capacity, in particular in terms of construction
of buildings and the provision of equipment. Many fine buildings
have been constructed; obsolete and little used equipment can
be found all over the developing world, but the activities and
functions of the institutions may have been ignored. This emphasis
on the hardware rather than on the software of institution building
comprises another of the reasons why capacities remain weak.
Definition of institutions
Since this paper places emphasis on institutions, I shall try
and define what is meant by the term. Institutions can be defined
in two ways: firstly as the underlying and established objectives,
values, processes, and procedures that are usually followed in
the implementation of programmes; and secondly as the actual establishments
in charge of the implementation of programmes, consisting of the
personnel, their skills and experiences, their mission and activities.
'Institution' defined as conceptual
and cultural superstructure
'Institution' as understood in the first sense covers the area
of human institutions and their underlying values such as marriage,
justice, human rights, property ownership, etc. These are the
'superstructure' of society embodying the cultural values of a
society, and the established norms to be followed in both day-to-day
functions as well as in longer term goals. 'Institutions' in this
first sense are, on the one hand very stable, with the survival
of customs and values for centuries, and on the other hand, always
dynamic in that they are always adjusting to political, social
and economic changes within the society. Moreover sometimes customs
appear to be the same as centuries ago, but may have in reality
totally changed their functions. An example of this is the bride
price in traditional African society, with the passage of cattle
being a way of cementing social relations. Today the bride price
has acquired a more commercial value, linked to the legal and
economic position of women.
'Institutions' defined as establishments
Institutions defined as 'establishments' include political institutions
such as political parties and parliament; economic institutions
such as banks, farms, industries and companies; religious institutions;
educational institutions such as universities, colleges, and schools;
and community institutions such as families and communities. These
"establishments" have physical facilities, staff and
functions. One of the most important of these institutions is
government itself.
Combining both forms of institutions
Institutions usually incorporate both meanings of the word. Thus
a parliamentary democracy has a physical existence, with personnel
and functions clearly defined. But at the same time the institution
of parliamentary democracy covers the underlying values and processes
which are accepted by all those working within the system. Institutions
become dysfunctional when there is no foundation of shared values
and procedures, for example where feudal value systems are combined
with a political democracy. Feudalism and parliamentary democracy
are in fact contradictory institutions. These contradictions become
evident when landless tenants are constrained to vote for their
landlord in parliamentary elections. Because the tenants depend
on the land for their livelihoods, they cannot afford to offend
their landlord, even though the landlord does not represent their
interests. This is one reason why parliamentary elections in Pakistan,
for example, turn out to be less democratic than military dictatorships.
Education can also be seen as an institution
in both senses: education comprises certain objectives, values,
processes and outcomes. It can take place under a tree or through
the internet. Educational institutions, in the second definition,
are the actual establishments such as schools, colleges, universities,
curriculum development centres, supervisory departments, etc.
Capacity building as institutional strengthening
Capacity building on the foundation of the two definitions of
institutions would require an in-depth analysis of the underlying
values as well as of the more technical processes. A purely technical
solution, however excellent, will fail if it does not take into
account the objectives and relationships which form both the foundation
and the cement of that society.
Moreover individuals function within their
institutional systems. Unless those systems value the new knowledge
and skills that the individual brings home, the newly acquired
capacities cannot be put into practice. Thus in building up capacities
it is essential to look at the institutions themselves.
Moreover, the institutions themselves are
dynamic. Individuals or groups of individuals may be able to transform
their institution. However they may only be able to do so if they
can persuade the majority of participants that change is beneficial.
And they would need the moral, technical and physical capacities
to bring about this transformation.
Building up critical mass within the institution,
whether this critical mass is in terms of moral support or in
terms of shared technical skills, is of critical importance in
capacity building. Institution building and institution strengthening
are therefore the keys to capacity building.
Capacity building of educational
institutions
The UNESCO International Institute for Capacity Building in Africa
(IICBA) was established to strengthen educational institutions
working in teacher education, curriculum development, educational
planning and educational management in Africa. It has begun its
tasks by concentrating on teacher education institutions. Teachers
are key personnel in any education system. They can provide either
an archaic or an up-to-date form of education. They can foster
traditional values or modern values. They can be technologically
obsolete or on the cutting edge of technological innovation. The
institutions in which they are trained are therefore key institutions.
Teacher education institutions in Africa
vary in quality and experience. Some primary school teacher training
colleges may concentrate on mother tongue literacy and numeracy.
Teacher trainees may only have primary education or two years
of secondary education. On the other extreme, some secondary school
teacher training colleges may be offering university level courses
which may have little link to the real life situation of their
pupils. This may have been relevant at a time when perhaps four
per cent of the age group had access to secondary education, but
may be unsuitable at a time when countries have realised that
modern forms of development require a much larger percentage at
secondary school level.(2) Colleges may have limited access to
up-to-date research and development in their disciplines. They
may have little access to information and communication technologies.
Following a needs assessment of participating
institutions, teacher education establishments have been linked
through an internet based network. This network offers degree
and non-degree level courses, mainly through distance education
and short institutes. The intention is that colleges which wish
to update in a particular area would allow all their staff to
update over a period of five to ten years. Distance education
offers the opportunity of massification of training, thus attaining
critical mass within an institution. Moreover, combined with information
and communication technology and short face-to-face sessions,
distance education has the potential for improving the quality
of the curriculum. In addition IICBA seeks to provide courses
on CD-rom, the idea being that all the teachers in a school can
participate in a course which they think is valuable.
Access to library materials is limited by
high cost and low budgets in the majority of educational institutions
in Africa. However at the age of the internet becoming a huge
library, it is possible to provide access to public information
through simple technologies such as videos, diskettes and CD-roms.
The internet itself cannot presently be accessed by most educational
institutions because of the low level of connectivity combined
with high cost in Africa. However technological changes which
will make internet affordable are likely to change the situation
over the next decade.
Finally there are islands of excellence all
over Africa and worldwide. These centres of excellence can, through
the establishment of networks, provide services to sister institutions.
An example of this is the use of the Indira Gandhi National Open
University (IGNOU) courses on distance education by Commonwealth
universities through the Commonwealth of Learning in Vancouver.
IICBA is also making these courses available to non-Commonwealth
countries in Africa.
Electronic networks also allow joint programmes
to be undertaken by institutions across the world. Thus laboratories
in a developing country faced with the tremendous challenge of
doing groundbreaking research without access to the sophisticated
laboratories available in industrialised countries, can today
work jointly to solve problems. The International Livestock Research
Institute (ILRI) in Addis Ababa has, with the help of UNESCO,
initiated an exciting partnership on agricultural research. Capacities
in developing and industrialized countries can thus be improved,
with research work becoming more relevant to real life problem
solving.
Conclusion
Capacity building today needs to emphasise institution building
and strengthening. It needs to aim as developing critical mass
in order to be effective. It needs also to link up with sister
organisations across the world in order to benefit from comparative
advantages and up-to-date research and development. Electronic
media offers the possibilities not only of electronic libraries
but also of virtual laboratories.
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