The Matrix System at Work - Independent Evaluation Group - World ...

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CHAPTER 5 INSTITUTIONAL ISSUES AND ORGANIZATIONAL STRUCTURE matrix within the Region. This structure came under withering criticism from the Region’s SDN staff in an FY11 survey 73 because of its diffused accountability and inadequate quality assurance from the field-based managers. SDN staff in that Region felt that the broad range of sectors under their country-based managers has reduced them to a “postbox” coordinator, rather than an effective line manager. 5.39 Europe and Central Asia, South Asia, and Africa have structures that lie between the Latin America and the Caribbean and the East Asia and the Pacific model, with sector leaders or coordinators designated for each CMU. The primary function of the sector leader or sector coordinator appears to be coordination of the work program and liaison with the country director. The range of sectors they are responsible for is too large for them to be able to provide meaningful quality assurance and they have not been delegated any responsibility for staff management. Discussion of regional variations can be found in Appendix G. Box 5.2. Views on Matrix Issues of East Asia and the Pacific Staff Based in SDN Units In an FY11 survey 74 EASIN (East Asia and the Pacific infrastructure) and EASER (East Asia and the Pacific social, environment, and rural development) staff expressed concerns on issues ranging from internal clearance processes and reporting procedures, the proliferation of management layers, decentralization of sector management, and the balance of power between headquarters-based and field-based managers, and extra efforts to sustain networks of decentralized staff. “The department’s structure with managers in the field has resulted in people without knowledge of particular sectors leading the dialogue in those sectors.” … “Having managers responsible for multiple sectors does not work.” “The [department’s] structure is completely dysfunctional. The managers in the field add no value and are mere bean counters/transaction processors. We need to go back to sector-based management with a fair mix of managers in the field and in DC.” “Do not have both [field and DC-based sector managers], it is redundant. Having Sector Leaders and Sector Coordinators simply adds to this complexity. The solution to challenges with multiple layers is not to add more layers!” “In [East Asia and the Pacific], the Country Offices have too much control over resources and decisions. It is difficult to engage unless one is based in the field office.” … “Better coordination between sector managers in the field and HQ. Budget has to be managed by the two sector managers, not only the ones in the field.” “Budget for full attendance of sector weeks and for travel from HQ to the field and vice versa is essential for such a convoluted structure to function. Skype, VCs etc. can maintain relationships, but they are not enough. There has to be face to face contact and relationships.” Source: EASIN and EASER FY11 Pulse Surveys. 95
CHAPTER 5 INSTITUTIONAL ISSUES AND ORGANIZATIONAL STRUCTURE 5.40 The SDN merger also has a distortionary effect at the country level due to the disproportionate size and resources of SDN relative to the other networks. As one country director put it, “SDN now basically owns my program, and I have to spend more time in protecting the smaller sectors than in anything else.” The overwhelming majority of staff interviewed (with the exception of senior SDN managers), both in SDN and in other networks, feel very strongly that the costs of SDN merger significantly outweigh its benefits. Budgetary Incentives as a Driver of Matrix Behaviors 5.41 The Bank’s matrix-related budgeting process involves allocations to each regional and network VPU, which are then negotiated and allocated within each VPU according to strategic priorities and work program agreements. In the Regions, the regional vice presidents hold back some money for regional functions, including the chief economist’s office (responsible for regional studies), and operational services and quality control functions undertaken by the OS unit. The remaining budget is allocated to CMUs, who negotiate work programs with SMUs, reserving some funds for their own administrative expenses. Once work program agreements are finalized, the fiscal year budget is released to SMUs for product delivery to country clients, with limited oversight and monitoring by the CMUs and regional vice president. Bank-executed trust funds for individual products are mobilized directly by task team leaders rather than through the normal budget allocation process. 5.42 IFC recently underwent an organizational change—termed IFC 2013. The matrix design and process adopted recently by IFC offers relevant lessons for the World Bank (see Appendix H for a full description of IFC 2013). The most significant variation from the Bank’s matrix system lies in the manner in which budgets and deliverables are negotiated among the three entities responsible for regional product delivery rather than providing complete budget authority to the country units. A second major difference is the refinement of the performance management system that links recognition and rewards in a transparent manner to contribute to corporate goals and to the longer-term outcomes of operations in which each staff member has been involved. IFC has also introduced metrics to monitor implementation effectiveness to identify problems early and allow further refinement of their matrix system. The effectiveness of IFC 2013 (Box 5.3) will depend on IFC’s ability to make necessary adjustments in response to the feedback from the organizational monitoring metrics. In the interim, one can learn from the significant challenges the IFC 2013 change initiative has faced in its short lifespan and how it is addressing them. 96
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The Matrix System at Work An Evalua
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©2012 Independent Evaluation Group
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Costs of Country and Sector Strateg
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Table 3.6. Total Cross-Support Sold
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Abbreviations AAA AFR ARDE ARPP BET
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Glossary Term Anchor sector directo
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GLOSSARY Practice managers (PM) Reg
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Overview The Matrix System at Work
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OVERVIEW rather than on the 1997 ma
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OVERVIEW satisfactory or better in
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OVERVIEW toward capacity building a
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OVERVIEW Innovation in the field is
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OVERVIEW Figure D. Outcomes of Bank
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OVERVIEW modernization in the corpo
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OVERVIEW management structure but t
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OVERVIEW Structure Bank-wide matrix
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MANAGEMENT RESPONSE interest and ow
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MANAGEMENT RESPONSE Management cons
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MANAGEMENT RESPONSE that reach far
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CHAPTER 1 INTRODUCTION AND CONTEXT
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2. The Strategic Alignment of Secto
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CHAPTER 2 THE STRATEGIC ALIGNMENT O
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CHAPTER 3 THE PROMISE OF A KNOWLEDG
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APPENDIX D EXPERIENCE IN THE TRENCH
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Appendix E Key Findings from Sector
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APPENDIX E KEY FINDINGS FROM SECTOR
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Table E.1. Country Directors and Ma
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# Other Questions Q # 7 APPENDIX E
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APPENDIX F FOCUS GROUP DISCUSSIONS:
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APPENDIX F FOCUS GROUP DISCUSSIONS:
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Appendix G Comparison of the Six Re
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APPENDIX G PROFILES OF THE BANK’S
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Appendix H Working across Organizat
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APPENDIX H WORKING ACROSS ORGANIZAT
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Appendix I Budgetary Incentives 65.
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APPENDIX I BUDGETARY INCENTIVES Bud
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APPENDIX I BUDGETARY INCENTIVES 72.
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APPENDIX I BUDGETARY INCENTIVES com
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APPENDIX I BUDGETARY INCENTIVES Fig
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APPENDIX I BUDGETARY INCENTIVES mea
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APPENDIX J WORKING ACROSS SECTORS A
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Appendix K World Bank Sector Strate
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APPENDIX K WORLD BANK SECTOR STRATE
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APPENDIX K WORLD BANK SECTOR STRATE
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Appendix L International Finance Co
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APPENDIX L IFC 2013 CHANGE INITIATI
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APPENDIX M STAFFING DATA Note: Head
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APPENDIX M STAFFING DATA Table M.7.
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Appendix N Managers Interviewed Nam
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References Barnett, Michael N. and
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REFERENCES Sy, Thomas and Laura Sue
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Endnotes 1 See Wapenhans 1992, 1994
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ENDNOTES appropriately assessed by
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ENDNOTES 46 The respondents to this
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ENDNOTES 71 See Safeguards and Sust
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