Introduction - Baobab

DECENTRALISED INTEGRATED DEVELOPMENT
PLANNING
(DIDeP)
Theo Rauch
Revised by Jochen Lohmeier
In co-operation with Celeste Rosslee
edited by Chantelle Wyley & Bettina Koelle
January 1999

i DIDeP Introduction
Introduction
Decentralised Integrated Development Planning (DIDeP) has a tradition of some 30
years, but it never quite made it to get acknowledged as a discipline. This should
change now.
DIDeP has three founding pillars: decentralisation, integration, development.
As early as after de-colonisation in the 1960ties, decentralisation was on the agenda.
It was linked to nation-building. In order to mobilise the nation-wide internal resources
of a state, national governments needed to develop an area-covering footing and
spread presence across the whole country. Complementarily, at the beginning of
globalisation, international institutions provided a hand in the same direction.
As early as in 1969, after frustrations with mono-sectoral modernisation attempts, the
World Bank charged a group of specialists with different backgrounds to draw up a
multi-sectoral development plan for the far-western province of Kigoma in Tanzania,
on the border to Ruanda and Burundi. Tanzania – and many other countries followed
suit – embarked on this approach for all it’s provinces, which were foster-fathered by
various donor-countries. But: the attempts at integration of these comprehensive
sector plans took some 2-3 years to be drafted. What was required was a more
focussed, problem-prioritising approach.
Although with some delay, projects and programmes were implemented, mostly
funded by donors with substantial budgets, often against the odds of sectoral
responsibilities of functional departments. One major lesson learnt relates to
decentralised development, be it services or economic / ecological measures: it
became rather donor dependant than influencing and resourced by national or local
budgets; but donors provided just temporary interventions whereas development is of
permanent character. This misfit lead to the conclusion that development is a change
process which to the largest extent happens on individual and business level, that any
intervention should only be of help (= subsidiary). In order to design development
interventions, the experience gained with the multisectoral-integrated, decentralised
development plans constitute an invaluable resource. We have drawn on this.
What can you expect from this book?
This publication is based on continuous research since the 1970ties and more than
quarter of a century own experience of the authors in international development work.
It was successively put together while teaching post-graduate university students and
groups of experienced international development practioners over the last 10 years on
regional planning, on rural development, on designing programmes and projects. This
is one of the reasons, why the material provided does not yet lend itself completely to
self-studying.
This handbook has been developed with public funds and is therefore a public domain
software.

DIDeP Introduction ii
As often with course material, there are changes every now and then, depending on
the audience, or on new insights. The material is available on the Internet, too.
Updating is easier, hence.
What made this publication and respective training courses attractive are the following
issues:
- It is neither an academic approach nor is it specifically made for application only in
one context, but it is experience driven, and systematically links theory background
with respective strategies with respective tools.
- It provides a system for development planning / interventions which allows to bring
a helpful order into the complex reality of development, which again stimulates to
transparently structure and sequence approaches in every case.
- It can be learnt by everybody with basic academic qualifications, although it
requires a high standard of analytical capacities and dedication to make concepts
as well as tools fit to the own approaches.
- It has proven to be highly useful and effective for those who applied the approach
in their development work, even if it was just the most appropriate bits and pieces
from the whole basket selected according to own needs.
We have structured the publication in the following way:
We provide a general introduction to development and the experiences gained with
intervention measures, and we provide a general methodological approach to dealing
with developmental issues (Module A).
We then walk you through 5 different aspects of designing development interventions:
• Participatory approaches (Module B),
• Economic viability (Module C),
• Ecological sustainability (Module D),
• Target group and gender orientation (Module E),
• The institutional and political dimensions of development interventions, which are
presently known under the fashionable term of ‘capacity building’ (Module F).
In each of these aspects
we try to provide some doctrines or theoretical background,
we present and discuss strategic options,
we offer tools for analysing specific situations, and
we suggest remedies or intervention measures.
This structure can also be presented as a table:

iii DIDeP Introduction
Doctrines
Strategies
Tools
Remedies
Participatory
Approaches
Economic
Viability
Ecological
Sustainability
Target
Group and
Gender
Orientation
Institutional
and political
Dimension
The last chapter tries to package the preceding deliberations into consistent
implementable measures, which often are called projects or programmes. Those need
to be planned and their implementation to be monitored and evaluated (Module G).
This is where this publication ends. The hardware of project cycle management as
well as the behavioural software of communication and facilitation are different
publications (and separate training courses).
In more detail the following table gives an overview of the structuring of contents:

DIDeP Introduction iv
Dimension
General
approach
Contents
Theory Development
Theories:
Modernisation
Dependency
Globalisation
Strategy RD objectives &
principles
Metamethodology
Analytical
tools
Problem Analysis
Potential analysis
Alternative
Analysis
Measures Participative
planning
Participation Economy Ecology Social/
Cultural
Participation in
practice –
theoretical
orientation
Optimising
Participation
Participation
design
Regional economic
development
theories
Functional –
territorial approach
Employment
creation
PRA Feasibility:
- productivity
- profitability
- cost-benefit
analysis
Viable
participation
design options
Diversification
Subsidies
Ecological aims in
relations to IRDP
Sustainable use
of resources
Land use
Planning
Environmental
Impact
Assessment
Resource
management
Multiple
Realities
Participation
Gender – and
target group
orientation
Target group
analysis
Participants
analysis
Social impact
analysis
Target group
adjustments
Self targetting
Political/
Institutions
Theoretical
understanding of
organisations and
their development
Promotion of
institutions and
organisations -
capacity building
Institutional and
organisational
analysis
Training
Re-organising
Establishing
Co-ordination
Roles of projects
Problem solving strategies
and methods
Logical Framework
Planning
Plan of operations
M & E

v DIDeP Introduction
As mentioned above, this publication is used as a Manual for a respective training
course. The course takes between 2 – 3 weeks net, and can be staggered for phases
of application in-between.
Objectives of the seminar on methods and techniques of
Decentralised Integrated Development Planning
GOAL Delegating agencies are able to apply
relevant aspects of regional rural
development in design and planning in
order to achieve their objectives
PURPOSE Participants cope better with the
challenge to contribute to broad-based
and sustainable development under
difficult frame conditions

DIDeP Introduction vi
OUTPUTS Participants
Our approach
are familiar with the background,
objectives and principles of
decentralised integrated
development theory and practice
are aware of difficulties in
implementing development
explore possible strategic options
in coping with prevailing economic
frame conditions
are aware of strategic options for
ensuring ecological sustainibility
know how to apply a target group
and gender specific approach in
development practice
widen their knowledge of adjusted
methods of people’s participation
are aware of ways to promote
self-help organisations
explore possible strategic options
in coping with prevailing
institutional frame conditions
are aware of different functions of
projects and conditions of donor
support
⇒ Interlinks the economic, ecological, social and institutional-organisational
dimensions of regional development design and planning
⇒ Interlocks development policy issues with practical methods of design and
planning
⇒ Matches “theoretical” background from faculty / professionals with “practical”
experience of participants
What we offer in this course

vii DIDeP Introduction
• Familiarity with the principles and objectives of the decentralised integrated
development design and planning
• Awareness of typical difficulties in implementing development measures
• Knowledge of relevant strategies to cope with prevailing (difficult) frame conditions
• An overview of relevant development design and planning methods, and ways to
assess their potentials and limitations
Learning modes
The seminar uses various faculty-participant combinations to provide learning space
and opportunities:
Reading tasks
Inputs from faculty
Role plays
Task groups (to work on a case study which provides some 6000 data to
simulate a sand box for exercising)
Plenary workshops
Learning groups
Total learning community
Feedback committee / Evaluation
Case consultation
Individual application

DIDeP Introduction viii
Table of Contents
Module A Development Approaches to Regional Planning
Topic 1 Introduction into regional planning theories and strategies
1.1 Introduction
1.2 Historical overview of strategies of integrated development
Topic 2 Regional Planning Objectives and orientations
2.1 DIDEP objectives and principles: a system
2.2 Rural poverty: a problem scenario
2.3 Hierarchy of objectives for regional development interventions
2.4 Design and implementation difficulties: lessons from international experience
2.5 Deficiencies of development inventions: a brief overview
2.6 Poverty orientation
2.7 Sustainability
2.8 Multisectoral and regional approach
2.9 South African Context
Topic 3 Meta-Methodology: the basis of this approach to development analysis and strategy
design (planning)
3.1 Regional planning in the process of development: definition and roles
3.2 Problem focused planning with a systems perspective
3.3 Interlinking bottom-up and top-down planning
3.4 Planning procedure: an overview
Topic 4: Regional Situation Analysis
4.1 Introduction
4.2 Expected results of situation analysis
4.3 Methodology of situation analysis
4.4 Steps within regional situation analysis
Topic 5: Some Practical Tools Used in a Contextual Regional Situation Analysis
5.1 Problem Analysis
5.2 Potentiality Analysis
Topic 6: Planning options following situation analysis
6.1 Introduction
6.2 Procedure
6.3 Alternative Analysis

ix IDeP Introduction
Module B Participation
Topic 1 Definition, background, principles and problems experienced with participation
1.1 Definition
1.2 Reasoning - why participation
1.3 Some non-participatory practices claiming to be participatory (but are not)
1.4 Problems in implementing participation
Topic 2 Strategic elements in participation
2.1. Principles for the participation of the mass of target groups in regional development
interventions
2.2 Participation as informed decision-making in attuned ways: the rationale
2.3 Different means of enhancing participation
Topic 3 Participatory rapid appraisal techniques
3.1 What is PRA?
3.2 Why use PRA?
3.3 What are the key ideas underlying PRA?
3.4 Where has PRA mainly been used?
3.5 Wen is PRA used?
3.6 Limitations of PRA
3.7 The PRA tool box
3.8 How to conduct PRA?
Topic 4 How to design viable participation processes?
4.1 Appropriate combination of methods of participation
4.2 Overview over relevant methods of participation in different planning steps
Topic 5 Example: A decentralised participatory planning process
5.1 Summative diagram of steps
5.2 Steps in designing and institutionalising a decentralised participatory planning
process

IDeP Introduction x
Module C Economic Dimension
Topic 1 Regional economic development theories and concepts
1.1 Introduction:
1.2 Overview of regional development theories, respective planning approaches, their targets
and types of intervening
1.3 Regional development theories and strategies in detail
Topic 2 Economic strategies to consider during regional planning
2.1 Functional and territorial approach
2.2 Promotion of viable locally interlinked economic activities
2.3 Employment creation through consideration of interrelations between technology level,
income distribution and production patters.
2.4 Economies and diseconomies of scale
2.5 Difficulties encountered by development interventions with respect to economic frame
conditions
Topic 3 Economic Analysis
3.1 Economic feasibility figures
3.2 Planning methodology: economic appraisal
Topic 4 Economic Measures and Interventions
4.1 Diversification
4.2 Subsidies
Annex:
Module C Basic concepts of macro-economic models and statistics

xi DIDeP Introduction
Module D Ecological Dimension: Natural Resources in Marginal Environmental Conditions
Topic 1 Ecological Issues to Consider in Integrated Regional Development
1.1 Ecological aims in relation to other DIDeP objectives
1.2 Problems experienced and typical reactions of interventions
1.3 Strategy elements
Topic 2 Land Use Planning
2.1 Definition
2.2 Context
2.3 Cases for Land Use Planning
2.4 Levels of LUP
2.5 Implementation instruments of land use plans
2.6 Planning methodology
Topic 3 Design and Planning Methodology: Ecological Analysis and
Appraisal
3.1 Environmental Impact Assessment (EIA)
Topic 4 Ecological Measures
4.1 Resource management
Module E Target Group and Gender Orientation
Topic 1: Theoretical Background
1.1 The concept of multiple realities
1.2 Poor people’s own strategies for their poverty-reduction
1.3 Definitions
Topic 2: Strategic Principles in Target Group and Gender Orientation
2.1 Principles of target group orientation
2.2 Principles of gender orientation
2.3 Overview of steps in target group and gender oriented planning
Topic 3: Target Group and Gender Analysis
3.1 Target groups analysis
3.2 Gender Analysis

DIDeP Introduction xii
Topic 4: Adjustment of Measures to Specific Target Groups
4.1 Identification of target groups for regional planning
4.2 Self-targeting design
4.3 Alternatives in adjusting measures to target groups
Module F Institutional-Political Dimension
Topic 1: Theoretical elements which help to understand institutional and organisational
development
1.1 Cornerstones of general development and institutional development
1.2 Different types of how people organise in a society
1.3 Roles of the state and roles of civic society
1.4 Purposes and types of Self-Help-Organisations
1.5 The internal functioning of organisations
Topic 2: Strategic elements for institutional and organisational development
2.1 Promotion of institutions and organisations
2.2 State-related institutional frameconditions and promotion strategies
2.3 Promotion of Self-Help-Organisations
Topic 3: Organisational analysis
3.1 Context of organisational analyses
3.2 Methodological orientations
3.3 Steps in an organisational analysis
3.4 Identification of service structures and change agents
Topic 4: Measures for institutional development and organisational development
4.1 Development of service agencies
4.2 Measures for the development of Self-Help-Organisations

xiii DIDeP Introduction
Module G Co-ordinated Implementation
Topic 1: The Roles of Projects and External Support Agencies
1.1 Summary of problem-solving strategies and methods
1.2 Definition of the role of a project
1.3 Strategic objectives of development-projects (generalised)
1.4 Roles of external support agencies
1.5 Role of projects and external support agencies in development programmes
1.6 Interlinkages among Project/Programme Management Function
Topic 2: Logical Framework Planning (of interventions, projects, programmes)
2.1 Overview
2.2 Formulating an intervention strategy
2.3 Assumptions and Risks
2.4 Indicators
2.5 Means of Verification (MoV) - (in brief)
Topic 3: Coordination by Action Planning
3.1 The PlanOp (Plan of Operations)
3.2 Combined workplan and project budget (example)
3.3 How to construct a combined workplan and project budget
3.4 Recommended structure of a Plan of Operation (PlanOp)
Topic 4: Decision-making during implementation based on Monitoring
4.1 Monitoring and review
4.2 External Evaluation
4.3 Procedures for carrying out an evaluation
Introduction.doc * 16/02/99