How can local development programmes (LDPs) build the capacity of local governments and local organisations in order to improve their performance? This guide from the United Nations Capital Development Fund presents lessons and guidelines for local government capacity-building in development programmes. It addresses LDP strategy, financing strategy, local public investment expenditure management, and accountability, communications and information. This summary focuses on chapter five of the guide, ‘Capacity Building’.
The aim of capacity-building within LDPs is to improve the performance of local organisations by addressing human resource, material or logistical, institutional and other constraints. Different measures are required to address different types of constraints, and any comprehensive capacity-building strategy should be a composite of these. Within such a framework, training and institutional development then become measures or strategies for achieving the wider goal of capacity-building for improved performance. Strengthening human resources at the local level is one of the most important activities undertaken by LDPs and requires significant effort, time and resources. Other measures include addressing material or logistical capacity at the local level, through either direct or demand-driven provision.
One of the challenges for human resource capacity-building at the local level is addressing human resource or personnel gaps. Options for filling personnel gaps include providing incentives for staff-hiring, innovations allowing the recruitment of extra personnel for key tasks and cooperation between local governments. A second challenge for human resource capacity-building at the local level is addressing skill deficits and other training requirements. Lessons and guidelines for local human resource development (HRD) include the following:
- HRD plans should include an assessment of functions and capacities, analysis of where capacity-building efforts need to be focused and identification of resources. They should include an implementation plan and methodology for self-evaluation.
- The core of HRD is usually training, often backed up with mentoring and on-the-job support. Training needs will vary from project to project. They should be clearly identified by the LDP capacity-building strategy.
- Training in basic topics, including administration, management, communications and gender issues, can be carried out by a variety of specialist agencies. LDPs can also provide training through a training-of-trainers process.
- Study tours to other projects, other local governments and even other countries can be highly instructive. However, several issues need to be kept in mind, including that study tours are not in themselves vehicles for acquiring new skills.
- Demand-driven training can complement direct provision by LDPs. Demand-driven capacity-building strategy should establish mechanisms that articulate demand deriving from real needs and ensure that supply responds effectively and efficiently.
General lessons learned from LDPs with regard to capacity-building include the following:
- Any capacity-building programme needs to be designed around an analysis of the different types of constraints affecting the performance of local government.
- LDPs differ from projects where systems are set up to be managed by project teams rather than by local governments. LDP procedures and systems need to be tailored to realistic views of capacities at the local level and the politics of local government.
- There is a need to be clear about how much capacity-building should be done and what kinds of capacity require strengthening.
- There is a tendency to see capacity-building as a prerequisite for decentralisation. LDP experience, however, suggests that devolving responsibilities is perhaps a prerequisite to the development of local capacities.
