The move to pooling is part of a broader process of change in development cooperation towards more country ownership and control. Under what circumstances is pooling Technical Assistance likely to be effective? This report from the European Centre of Development Policy Management reviews the pooling of technical assistance (TA) in the context of sector-wide approaches (SWAps). Based on reviews at field level in six African countries, it argues that pooling TA is not a panacea but does show some promise. Whether or not pooling is successful depends on capacities available to support it.
Capacity shortages have slowed progress in TA pooling, which is not yet having a major effect on national ownership. Most collaborative initiatives are more labour intensive and complex than was hoped and the transaction costs of many SWAps are hard to justify. However, there is some evidence of a correlation between pooling and better policy and it may be a useful innovation as part of wider reforms.
Five interrelated factors are shaping TA pooling:
- The policies and organisational context within the country: Government officials are often less enthusiastic about pooling than some International Development Agencies (IDAs). Common concerns include the management implications of a sudden policy switch, the possibility of reduced flexibility and that pooling is a means of reducing overall aid flows.
- Attitudes in IDAs: These may be affected by policy and procedural restrictions, strategies for using TA and incentives within organisations to change approaches.
- The relationship between national governments and IDAs: A productive relationship inspires trust and a willingness to innovate, as well as reassuring IDAs about results and making them less inclined to try to control them.
- Relationships among IDAs: Pooling is more likely among IDAs with a common vision and history of collaboration.
- Design and management of sector programme support: Pooling is collective action that needs careful management and the right kind of organisational incentives.
Three different types of pooling can be identified based on the extent of collaboration: full, mixed and loose. It is important to select the best ‘fit’ for each situation. Involving too many donors early on can stifle initiative and dilute action. More successful programmes adopt an incremental approach and avoid moving too quickly or on too grand a scale: IDAs especially tend to ignore the pitfalls of complex reform efforts. Further recommendations in support of TA pooling are:
- Restructure relationships between partner countries and IDAs to increase the scope for pooling and national leadership. It is also important to move ahead with the harmonisation of donor procedures.
- Encourage a climate more supportive of TA pooling at the field level. The ‘rules’ of development cooperation have tended to be biased against collective action, and there are still situations where individual action is appropriate. However, the pooling of ideas and interests may matter as much as the pooling of more tangible resources.
- Experiment with new models of TA, moving beyond benevolent aid models of the past.
- Combine competition and choice in the development of TA with some degree of collective action and collaboration.
- Develop better frameworks for the design and management of TA as part of a well-conceived approach to organisational change. In addition, as governments take over the direction of TA, IDA control functions will diminish and alternative control arrangements will be required.
- Invest in up-front preparations like scenario planning, training and awareness-raising, and developing a shared sense of purpose.
