44961 Capacity Building 291 June 2008 Findings reports on ongoing operational, economic, and sector work carried out by the World Bank and its member governments in the Africa Region. It is published periodically by the Operations Results and Learning Unit on behalf of the Region. The views expressed in Findings are those of the author/s and should not be attributed to the World Bank Group. Madagascar Building Leadership and Management Capacity through the Rapid Results Approach The following article is based on a case study from the volume Leadership for Development Results. This volume is a compilation of country case studies from the "Leadership and Change Forum," Marseille, France, October 2007. The complete case studies as well as more information on the Forum can be found at the World Bank Institute (WBI) Leadership Development Services website: www.worldbank.org/capacity/leadership. I n 2002 Madagascar's new planning or monitoring and government under evaluation in most sectors. President Mark Collaboration was weak, with Ravolamana recognized the no existing mechanism to urgency of addressing the allow for a joint ministerial peoples' high expectations for response to problems that cut concrete economic and social across sectors. improvements. While it rushed to put the economy back on Leadership and Management track and improve the quality Program (LAMP) of life, its vision and strategy for reform were no match for The World Bank responded to the realities on the ground. A the president's request with Malagasy citizen noted that, an innovative Leadership and "there [was] a contradiction Management Program (LAMP) between the state we tailored to the needs of his inherited and the objectives leadership team and we set for ourselves."1 environment. The LAMP was comprised of four components: By the time the · A series of government/ Ravolamanana government cabinet retreats combined assumed power in 2002, GDP with rapid results pilots; had declined by 13 percent, · A one-week management Findings key public services were training in Canada by the discontinued, and the poverty Institute of Public rate soared from 69 percent in Administration of Canada 2001 to 80 percent. There was (IPAC) and the Ecole widespread joblessness and Nationale d'Administation high inflation.2 Publique (ENAP); · A three-day self- Within the government, there management seminar by the was little capacity for policy Art of Living Foundation; and · A Leadership Transformation Project, which sought to The Madagascar Action Plan: Madagascar's development vision and strategy develop transformative leadership capacities The Madagascar Action Plan (MAP) 2012 sets out a roadmap for achieving the government's vision of development. Its purpose is to produce a quantum leap in the development process through intensive adaptive by mobilizing the Malagasy people and the country's international partners to ignite rapid leadership training and growth, and thereby achieve poverty reduction. coaching to lift up the quality of the whole public sector. The MAP outlines eight specific areas of focus: (i) good governance, (ii) educational transformation, (iii) health and family planning, (iv) environment, (v) rural development, (vi) the economy and the private sector, (vii) the environment, and (viii) national solidarity. For Going from the abstract each focus area, there are quantifiable goals to be achieved by 2012. to the concrete The MAP further delineates the long-term vision in national development strategy called By combining cabinet retreats "Madagascar Naturally," which the president put forward in 2004 as a roadmap for the period 2007­11. The vision foresees the transformation of Madagascar from a subsistence economy, with rapid results pilots, with significantly increased exports of pharmaceuticals and textiles; enhanced linkages participants were able to go between the rural and industrial economies through agro-industry; the transformation of from abstract concepts of mineral products; and the provision of economic services such as tourism and agricultural leadership to a concrete credit. understanding of strategy and implementation, transforming Source: Heidenhof, Teggemann, and Sjetnan 2007. knowledge to results. The rapid results pilots delivered Madagascar's Poverty Madagascar Action Plan (MAP), simultaneously valuable Reduction Strategy Paper to a review by a panel of high- lessons and tangible results, (PRSP), including governance level development experts. while the cabinet retreats reform measures such as built the commitment and decentralization. The president as change receptivity of the new agent government. In addition, the second retreat introduced participants Under the president's Between 2003 and 2006, WBI to the rapid results approach leadership, and with support provided support to four cabinet (RRA) and led to a series of from high-level political and retreats attended by RRA pilot projects, which were technical officials, a ministers, permanent assessed at the third retreat partnership emerged with secretaries, chefs de region, in May 2005. economic actors and various and chaired by the president financial and technical and the prime minister. Planning for the third retreat partners. This was guided by took several months and administrative authorities, At the first retreat in June followed two tracks: opinion leaders, and 2003, twelve internationally (i) Rapid results interventions traditional leaders, known resource persons gave were piloted in four regions, ("Ampanjaka" or kings of feedback on the government's focusing on rice production, tribes), who liaised with the evolving strategy, exchanging importation, and distribution. rural population as experiences and good practice (ii) Six growth strategies community-based decision from their respective pertaining to fisheries, makers and messengers par countries. tourism, handicrafts, agro- excellence about The second retreat in business, mining, and rural socioeconomic and political January 2004, focused on electrification were reforms. improving service delivery, and analyzed. showed a marked shift toward The president's commitment a results orientation. The The fourth and last retreat, made it possible to rapidly primary goal of the retreat was in June 2006, presented the deploy coaches, experts, and to find ways to speed up the first draft of the government's trainers to assist key leaders results targeted in new development strategy, the in sketching out a new plan from 10.8 percent in 2005 to while tackling the barriers to 21.5 percent by the end of Beyond these tangible change. The MAP would 2006. outcomes RRA has also helped emerge from this process to build social capital and rally become the unifying road map In the Betsiboka region, RRA stakeholders; it has improved for the country's vision and initiatives contributed to collaboration within strategy for development. significant increases in local multisectoral initiatives by government revenues from enabling ministries to work mining activities. In 2005 a together and ministries with RRA process: pilot program started in two local service agents. It has Desired outcomes communes to regularize the built new confidence and informal sector and legalize capacity for action, In February 2005, when the small-scale mining by issuing management, and leadership government launched its first mining certificates. The skills. rapid results pilot, the goal quantity of gold declared by was to mitigate the effects of small-scale miners and The application of RRA in a significant shortfall in rice registered went from 400 support of the government's production, importation, and grams (before the RRA decentralization efforts has distribution. The crisis was initiatives) to 12 kilograms. advanced capacity solved by a combination of The program was expanded to development by improving the policy-based and technical other regions and led to the results orientation and interventions. Rice production registration of over 12,000 instilling a sense of shared increased significantly in two small-scale miners.4 responsibility and unity for of the four targeted regions achieving results at the local when the RRA was applied. In An independent review of the level. the region of Boeny, production results of the 2005 pilot phase went from 2.5 tons per hectare concluded that 67 percent of Future demand for RRA in 2004 to 4 tons per hectare the pilots in the rice, tourism, in 2005, and in the region of and infrastructure sectors met In 2005 the minister of Menabe, it increased from their objectives,5 22 percent Health and Family Planning 22,000 tons to 37,000 tons.3 achieved them partially, and decided to scale up the RRA. 11 failed. The RRA also The directors of the 22 regions This success generated an contributed to tangible results met and agreed on a common interest in using the RRA in in health (family planning, vision, and on the challenges other sectors and regions. The HIV/AIDS, and nutrition) and to be met. As a result, the World Bank supported the tourism (infrastructure, directors decided to scale up government's roll-out of RRA electrification, and water the RRA across all their pilot programs in selected completed). It has also been regions. Each region competed sectors in 2005. The program used to increase textile to improve performance, and supported RRA initiatives in production, litchi production, their efforts were supported by the Diana region to increase and exports. donors. The approach was also tourism revenues, and in the scaled up in other central Antsinanan region to expand Impressive performance ministries such as Justice, the production of litchis. results were seen in Public Security, and Mining. Analamanga region. Access to In Anamalanga, RRA family planning sites/services Maintaining the availability initiatives supported the reached 100 percent within of well-trained local coaches expansion of family planning 100 days (September 2007). is essential to sustainability. activities of the Ministry of Similarly, acceleration was Coaches are recruited Health. The use of noted in contraceptive rates, through a competitive process, contraceptives by women of from 18 percent to 24 percent and are supported by a World childbearing age increased in 2006.6 Bank-funded project. There is, however, concern Kabell, Dorte, Eric Republic of Madagascar. that this may not be possible Champagne, Cia Sjetnan, 2007. "Draft: Leadership in the future; and the and Atieno Fisher. 2006. Case Study." Presented at sustainability of coaching "Learning through Realizing WBI-hosted forum, support is a concern. One Results: An Unfolding Madagascar: Leadership promising suggestion is to Sequence of World Bank and Change Forum. develop a professional Institute-Supported Marseille, October 9-10. coaching practice in-country Knowledge Sharing and a ready pool of external Retreats in Madagascar." World Bank. 2007. World and internal coaches. December. World Bank Development Report 2007. Institute, Washington, D.C. World Bank, Washington, D.C. Sources Kabell, Dorte. 2008. "World Bank Group Supported World Bank Institute. 2007. Association Hevitra Maro. Transformational Madagascar: Leadership 2006. "Evaluation externe Leadership Program in and Change Forum. des deux phases des Madagascar," Final Marseille, October 9­10, Initiatives à Résultats Evaluation. January. World 2007. Rapides (IRR) à 150 jours." Bank, Washington, D.C. Rapport Final, Mars. Notes Nair, Govindan, Eric Heidenhof, Guenter, Champagne, and Cia 1Heidenhof, Teggemann, and Stephanie Teggemann, and Sjetnan. 2007. Sjetnan 2007, p. 5. Cia Sjetnan. 2007. "A "Madagascar: Building Leadership Approach to Decentralization Capacity 2Heidenhof, Teggemann, and Achieving Change in the through Rapid Results Sjetnan 2007, p. 3. Public Sector: The Case of Initiatives." World Bank Madagascar." World Bank Institute, Washington, D.C. 3The other regions of Institute, Washington, D.C. Vakinankatra and Neuron Global. 2007. "High Bongolava were less Kabell, Dorte. 2006. "World Performance in successful, primarily Bank Supported Leadership Development: Conference because of a lack of and Management Initiatives Insight Report." Report for resources. 2004­2005. April. Synthesis WBI-hosted Leadership and of Evaluation Findings." Change Forum. Marseille, 4Heidenhof, Teggemann, and World Bank Institute, October 9-10. Sjetnan 2007, p. 11. Washington, D.C. 5Association Hevitra Maro 2006. 6EDS, 2006; EPM, 20xx. Findings and InfoBriefs are edited by Lawrence Mastri, lmastri@worldbank.org