image missing
Date: 2024-04-28 Page is: DBtxt003.php L0913-TVM-MMW-000007
TrueValueMetrics ... Peter Burgess Manuscript
Making Management Work
for Relief and Development
HOME Nav ... L0913-TVM-MMW-000000a Last ... L0913-TVM-MMW-000006 Next ... L0913-TVM-MMW-000008
Chapter 7
People
People are Central to Everything

People often make terrible decisions

Almost everything that goes on in this world is a result of decisions made by people. The failure in the relief and development sector is all about people making bad decisions, or perhaps more accurately, decisions that work for the individual no matter what the consequences, no matter what sort of disastrous results ensue.

People make decisions, and they do not do this in a vacuum. Decisions are mainly made that are the best for the decision maker ... and even where there are benefits flowing to others, there is an individual component to the decision that cannot be ignored.

There is a level of complacency in a lot of decision making that explains why big issues on the other side of the world do not get handled in a very effective way. What does it really matter to me if people are being killed 5,000 miles away? Why should I give up anything if that killing has little or no impact on my good life?

This complacency is very prevalent in the “north”. The “north” has been amazingly successful in the past 30 years in accumulating huge wealth, albeit denominated in US dollars. It is easy to conclude that the decisions that have been made have been good decisions.
“I'm all right Jack!”
This was a popular phrase in the UK back in the 1950s when the middle class was doing very well. In North America and Europe, the white middle class was prospering and nothing else very much seemed to matter. If people are doing well then other issues get very little attention.
It took Russia's launching of Sputnik to shake the mood of complacency, and then the civil rights movement in the USA and the end of colonial rule in Europe.
The events of 9/11/01 when terrorists struck in the United States should have served to break down complacency about failed relief and development rather than simply serving to strengthen a resolve to prove the “north” has a God given right to its wealth.
Not taking notice about the failure of relief and development is certainly going to undermine the security of the “north”, maybe soon, but definitely in the long run.
Where do priorities come from?

People make priorities, and what is priority depends where you are in the global socio-economic structure. There are vast differences between priorities as seen by people in different organizations and in different countries.

Those that work in the UN, the Breton Woods institutions, the bilateral donors, the government in the “north”, the governments in the “south”, the international NGOs are going to have different priorities than those that work in the world's capital markets, and in the corporate world. The elite of the “south” and the wealthy people in the “north” are likely to see things rather differently than the poor ordinary people in the “south”, and indeed the ordinary people in the “north”.

And it is likely that the priorities that people talk about might well change based on the time of the week. What might be priority with the family at the weekend, or at Church on a Sunday (Mosque on Friday, Synagogue on Saturday) may be different from the priorities during the business work week. Priorities are enormously important, since they are a critical factor in decision making. Decisions are especially important when there are limited resources. In general, priorities are determined by personal self interest.
My job ... my career
My job and my career are key to the decisions made by individuals. I used to think that decisions were made in a vacuum and were objectively decided based on the facts. But the facts that are mostly taken into consideration are those that relate to whether the decision is going to benefit me, my family and perhaps, at a stretch, my community.
Disaster Relief

The relief industry is not needed if there are no disasters. But the relief industry has been a growth area, and is now very much an entrenched part of the relief and development establishment. Humanitarian relief has been a good area to make a career.
I was in Ethiopia at the end of the great famine in the 1980s. Millions had died, and a huge relief community had grown up in Addis Ababa in response to the crisis. At last rains had come, and crops were doing well for the first time in years. The UN's relief operations in Ethiopia were closing down, the staff were depressed and getting ready to leave.
While the boxes were being packed up, a fax came into the office. Locusts had been found in a northern part of Ethiopia. There was a palpable happiness that this was an impending new disaster, and the relief operations would need to be reactivated.
It was one of those moments that I will always remember with profound disgust.
Though it happened several decades ago, I remember it as if it was yesterday ... there was something deeply discomforting about this happiness on top of news of a crisis that would kill people.
The lesson is that people want the work, and if work results from disaster ... the more disaster the better. Relief consumes a lot of relief and development resources, doing some immediate good, but very much at the expense of sustainable socioeconomic progress.

It has been interesting to watch people in my age group go from being highly motivated activists for change and a better world in their 20s, to being vary careful and guarded about their jobs and their pensions as they aged and got into their 50s. This is a reality and understandable, but it also explains in large part why the sort of changes that are needed do not get done.

Organizational priorities are more than anything else about sustaining the organization's existence and people keeping their jobs and their pensions.


People are not held accountable

Even though it is people that make decisions, there is very little systemic association of results with people and their decisions. This is typical of bureaucracies, but it does not result in results oriented decision making.

Because people are not held accountable other than in a limited way for their job performance ... not at all through a framework of public accounting ... people are doing a lot that should not be tolerated. People will always do the easy thing, and will follow the incentives. There are no incentives for excellence in personal and corporate citizenship.


Obscene Greed and Cruelty

Who is taking responsibility?

The global society is an unacceptable mess, with obscene greed and cruelty in play. The world's leadership in the “north” is avoiding involvement and avoiding responsibility and ordinary people are tuning it all out. But this mess came about because people are making decisions all the time that have ended up giving these results, including leaders in the “south”.
21st Century Robber Barons
The world's elite does not seem to believe that there is one human race, and that all people should be treated right, that everyone should have some opportunity to share in the world's wealth.
There is a community of elite that have a single focus on what is there in it for me, and this mindset has been very profitable.
It was recently reported that hat the largest eight corporate organizations in the world control more of the world's global wealth than do 50% of the world's poor. A staggering amount of wealth has been concentrated into the world's wealthiest groups and the corporate world.
People make war

War comes because there has been failure. People have many reasons for going to war, few of them good.

Rarely do people go to war because it is truly the “right” thing to do. Usually a war is started because some people see advantage in the war, and expect to gain from it. And people do not stop war because they also see advantage from it.

A lot of people have seen big benefits from war, especially a remote war. Being a supplier of military equipment to groups at war can be very profitable, especially if the groups are rich and the war is a long way off. But war is a value destroyer as well as making profit for some elite groups. The value destruction can be devastating ... and the human cost of war something obscene.


People do violence

And on a more local basis, people do violence to one another. The reasons for violence are usually greed in some form or other. And once there is violence there is then the back and forth of retribution and revenge. Violence is also a value destroyer ... and gets in the way of socio-economic progress in all sorts of ways.

Incompetence or Brilliance

How good are staff and experts?

It is not at all clear whether international staff and experts are incompetent, or brilliant and simply working towards a different end.

Many of the staff and experts engaged in the relief and development sector are highly intelligent and well educated. Many have a lot of academic credentials and many have significant field experience, but it is a big question how much of this is relevant, and how capable they are at addressing the practical issues of the relief and development sector.

There are many issues. There is a prevalence of terms of reference (TOR) that make it impossible for an expert to get the work done right. Consultants want the work and rarely hold out for TOR that are meaningful.

And there is also the question about the comfort level of staff and experts in the relief and development sector around accounting information and hard data about performance. Certainly it is clear that there very few professional and experienced accountants around the relief and development sector, and the use of good accounting information is minimal. The UNDP practice of budget adjustment is a typical example of the level of financial understanding in the organization.
The old UN practice of budget adjustment
I had difficulty believing this when I found it.
For years and years the United Nations Development Programme (UNDP) had a practice of adjusting the budget of its projects to the actual expenditure prior to closing them out. Under this system, there was never any reported variance between budget and actual. Just a report of actual expenditures, with budget no longer in the record. They also used to adjust the objectives in the project paperwork so that the final reports would show that the projects achieved the objectives. The costs projected and the objectives used to justify the expenditures at the beginning of the project simply disappeared from sight.
Worse ... many of the UN staff did not seem to understand how inappropriate these accounting mechanisms were. I do not know if these practices have been changed ... I hope so, but they were the standard practice for much longer than a decade to my certain knowledge.
Economic hit men

The business of business is “hard ball”, and the same goes for international affairs. It should come as no surprise that all sorts of inappropriate behavior is the norm rather than the exception.

The publication of information about “Economic Hit Men” is not really surprising1. I did similar work to John Perkins, but without the “connections” that he had, and without the need to satisfy clients. Rather I spent a lot of effort trying to get the relief and development agencies to change their project design so that it would actually do some good for the intended beneficiaries.
Kill the Messenger
Eventually I was deemed a non-conforming consultant and did very little work for the World Bank Group after that. A few bank staff who wanted objective assessment, no matter what the outcome, continued to give me assignments, but that was a very small group.
Overall it is sad to say, the experts who advised inappropriate projects were able to get more funds and failure ... and therefore debt, than people like myself who did not want to do a project unless it was designed to do some good, and be repayable.

What happens to good work?

Good work is unacceptable to most relief and development organizations if the conclusions are not in accordance with the wishes of the sponsoring organization. Consulting assignments are rarely expected to give results that are based simply on the evidence.
Liberia – Cooperatives and Other Organizations
A World Bank agricultural project in Liberia had, inter alia, encouraged the formation of agricultural cooperatives as a way to improve rural sector socio-economic performance. Our assignment was to confirm that cooperatives were effective and that other parastatal entities were not an effective organizations in the sector. This report with favorable conclusions was a condition for second phase financing of the project.
I am an accountant. I can read financial statements ... if I am allowed to read then and if they exist. It turned out that they did exist ... a small government office had done audits of all the cooperatives in the country, big and small, and prepared audit reports. I was told about the office, not by the project staff, but by some people in a small cooperative who knew this work was being done.
Initially I was not allowed to go to the office, but I eventually did go to the office and was told that I was not allowed to see the reports. Eventually I managed to see the reports and was able to make a comprehensive analysis that showed more than anything else the scale of the theft that was taking place in the big cooperatives (supported by the World Bank project) and the excellent performance of the little cooperatives run by community farmers.
I also showed that one of the parastatals was excellently managed and performing very well and with almost no inappropriate political influence, while two other parastatals were operating in a disastrous fashion with heavy political influence. The issue was not the form of the organization, but the competence and the integrity of the people involved.
The Government and the World Bank were not pleased. The conclusions of the report were that the World Bank and project supported cooperatives were nothing more than a vehicle for removing funds into private hands. The problem of next phase conditionality for financing was easily solved. The World Bank and the government agreed to remove the conditionality. And as for the consultants ... we never got the pay owed to us!
Two years later the World Bank eventually realized that it needed to pull out of Liberia ... nothing was working and it was embarrassing the World Bank!
There are exceptions. I have been employed on occasions simply because my analysis tends to reflect the underlying facts, no matter what the consequences. Good people and good projects benefit from this ... and it can form the basis for thinking through solutions that will work.

Bad work

Too much of the consulting work that is done in the international relief and development sector is not very good. There is not very much professional oversight and accountability, so to a large extent anything goes, and in most places there are far too few local people with the experience to challenge the international experts.
Fish Meal in Malachal, Yemen (PDRY)
I visited Malachal. Yemen (PDRY) as part of a World Bank mission in the late 1980s to see a fish meal industry investment and evaluate the performance of World Bank investments in fisheries.
It was not a good situation. There was a big fish meal plant, but very little fish were being caught to supply the plant. Apparently some incompetent “experts” had recommended that the economies of scale of a bigger fish meal plant would solve the problem of failed smaller plant. The problem was not the fish meal plant, but the fish resource. Two seiners had been operating and were catching much less than anticipated ... and with the resource in question it was quite irresponsible to invest a lot of money in a bigger fish meal processing operation.
In the original planning for the fish meal plant investment it was clearly set out that validation of the resource was a critical first step to be done before there was a major investment in fish meal processing. Subsequent consultants ignored this, as did the World Bank experts and the government.
Relief and development consultants frequently do their work with a view to doing more consulting work in the future, and put this ahead of a decent level of professional integrity. Two common forms of this are: (1) the recommendation that more study and research is done before taking any decision about action, and (2) ensuring that the client gets a “feel good” report, rather than one that get to grips with the issues.

A lot of academic consultants do their work with an eye on publication in peer reviewed journals. This is good for an academic career, but not good for relief and development progress. Peer reviewed journals have a very different function in academia than good research studies in the relief and development sector, which should, in my view, contribute to “management information” and the ability to make better operational decisions.


People are Responsible for Corruption
There’s a hole in the bucket
Where has all the money gone. Over the past 40 years as much as $2 trillion has been disbursed through the relief and development sector, and at the end of this time there is a lot of debt, but rather little development. Many of the problems of development are blamed on lack of money and financial resources, without being specific about there the money flows are being measured. The fact of the matter is that there a large amount of money has gone into the system, but rather little of it has been getting to where it is needed. Some of the fund flow loss is plain corruption and fraud, and some is poor decision making.
Fund flow accounting is not done very well. There is little reporting that makes tracking fund flows easy. Oversight breaks down as funds move from organization to organization. Since in modern government and the relief and development sector funds are commonly disbursed into another organization, and often then disbursed further into other organizations, oversight becomes totally non existent.

From an accountant's perspective, fund flow accounting in the relief and development sector is one of the most obvious places to make substantial improvement.


Accountants are Meant to Control Corruption

Bribery and corruption are not new. People have always been “for sale” but the scale of modern bribery and corruption is probably at record levels.
I was introduced to the idea of fraud and bribery and corruption in a book published in the 1930s called “Very Private Business”. It was loaned to me by my first accounting supervisor early in my training as a Chartered Accountant. While I was expected to learn the mechanics of accountancy, I was also expected to live and work in the real world. This book opened my eyes to the creativity of people when a lot of money is involved. Later, when I had my own accounting responsibilities in the US corporate arena I remembered lessons from the book, and tried to build accounting and control systems that would make it difficult, if not impossible for the creative crook to run off with the company's assets.
When I started consulting in the relief and development sector it was a real shock. Though there are many procedures and controls, and they are very onerous, but they are totally useless. They serve to make it difficult for good people to do a good job, and are virtually no deterrent to the rich and powerful crooks.

Few of the basic but sound financial controls needed are in place. It was a shock to find that huge fund flows were not accounted for, and were not the subject of any oversight or corrective action for months and years. In my corporate experience I would have wanted action tomorrow, if not already today.

There were very few people around in the relief and development organizations who had accounting training, even at a most basic level. With no accountants in the dialog, it was very easy for everyone to fall into the trap of simply talking about corruption and control as if talk on its own is going to be enough. For some things, this may be so, but when it is the accounting and control of money it is totally inadequate.


Very little of the funding gets to beneficiaries

Only a very modest amount of relief and development fund flows reaches communities where ordinary people live and work. Most communities are really “on their own” and rarely see any form of support either from their own government or from NGOs supported by relief and development sector donors. Without community level initiatives there is not going to be much of visible and useful results. Funding flowing into government and into parastatals and other government controlled entities has been almost 100% ineffective as a vehicle to deliver fund flows to community activities.

The example of the shrimp project in Yemen (YAR) shows how creative people can be. The project was turned into a major source of funding for senior people in government, while the project became a totally dysfunctional operation. When we (the supervision mission) identified the problems, we recommended immediate remedial action, that was quickly agreed on a technical basis, but subsequently was reversed at a high political level. It is very difficult to do good accounting when the high leadership does not want it, and will do nasty things to ensure that accounting does not become a threat to fund flow diversion.
Corrupt Shrimp Project in Yemen (YAR)
But it did have benefits. The trawlers were costing considerably more than was planned for the project, and much more than I would have allowed my old company to pay. I learned conversationally that the billing price was higher than the original quotes which is shorthand for saying that someone is getting rich at the expense of the project, and as I learned more about the accounts of the project it was apparent that almost everything was being substantially marked up.
The accounting information about project performance made it clear that the project would never be able to justify itself ... and the mission team and technical staff of the World Bank and a co-financier (DANIDA) quickly made the decision that the project financing should be immediately terminated.
Later, I learned that the decision was reversed. Decision factors that had nothing to do with the technical performance of the project meant that disbursements continued to fund a totally failing project. No wonder there is unrepayable debt! Where the profit opportunity and the maximizing of the value chain for “north” benefit is worth a year, it is obvious that the business decision should be to pay whatever it takes to ensure that this profit opportunity is protected ... like an insurance.
From Nigeria in the 1970s
I was in Nigeria and friendly with some of the Central Bank staff in Nigeria at the height of the cement scandal. Hundreds of shiploads of cement were sold to Nigerian businessmen using irrevocable letters of credit. Because of a huge overload situation in the Nigerian ports, there were very long waits to come in to unload. International businessmen know their trade, and most of the ship charters were “time charters” which means that payment for use of the vessel depends on how long it is being used ... and with the port congestion this became a very long time ... months instead of days to get into port. With bribery it was easily possible never to get into the port.
The situation was totally out of hand, and a disaster for Nigerian businessmen.
The Central Bank decided that it would solve the problem by revoking “irrevocable” letters of credit, something that had never ever been done by serious international financial institutions. I commented at the time that in 5 minutes the Central Bank had done damage to Nigeria's reputation that would take decades to rebuild. More than 30 years later, Nigeria's financial reputation is still a shambles.
So the result seems to be that a few very powerful local people ... the elite ... get to earn a lot while the larger population of the country are taken to the cleaners. People who understand the corporate logic, and get their salaries and bonuses from the corporation, have little choice but to do whatever makes corporate profit even though in an individual capacity they might consider it unethical.

Bribery is profitable ... therefore widespread

It one looks closely, it is fairly easy to figure out ways to make money in the “south”. The dynamic is different in most of the “south” because they are “shortage economies” rather than being economies of abundance.
Brunei
The people of Brunei are poor, very poor. But the Sultan of Brunei has been listed as one of the richest individuals in the world for decades.
Where did this wealth come from. For many decades Royal Dutch Shell has been exploiting the oil resources of Brunei. When you connect the dots, the conclusion is that the wealth of the Sultan and the poverty of the people are something to do with Shell.
Everything, I am sure has been “legal”. But that does not by any stretch of the imagination, also make it ethical and right.
The way to make money in a shortage is to hold out for the highest price. If “government” chooses to regulate the price and hold it down, then the market mechanism just moves into the shadows and the official low price gets supplemented by some bribery that nobody sees. If I can afford it, and get the goods ... what is so bad about that? It is, after all, the market economy at work, and simply circumventing inappropriate control of the market by government. Does it really matter that the local “rule of law” is being flaunted ... it ought to, but probably does not.
More from Nigeria since the 1970s
I was working a lot in Nigeria during the early 1970s befoe the OPEC induced oil shock increased the price of crude oil from $3.50 a barrel to $13.50 a barrel and made Nigeria and other oil exporting countries very, very rich.
During my many visits to Lagos, I stayed at the Ikoyi Hotel and watched the flood of foreigners, mainly Europeans and Americans, who arrived in Nigeria intent on getting profitable contracts signed no matter what. Most arrived with lots and lots of cash, which they exchanged for signed contracts for everything under the sun. Most contracts were not worth the paper they were written on, but the Nigerians were happy, and the foreigners were happy until they got back to their homeland and realized how little of value they had for their money and effort. These were heady times, and the world's greediest people were on a feeding frenzy.
The business community from the “north” expected to bribe the Nigerians and profit mightily. In fact, quite often, the Nigerians conned their new partners and the greedy lost their investment.

And there was also the close association between the leaders of the Nigerian military, the government and the oil companies and oil industry contractors. It is common knowledge that government and government leaders in Nigeria, with a lot of their friends and associates became fabulously wealthy through all sorts of schemes, and largely at the expense of the national treasury and the Nigerian people. Though the oil companies can probably prove that they did nothing illegal, there are few close to the Nigerian situation that are comfortable with the oil industry's behavior.

The grand corruption practiced in Nigeria has distorted the economy so that the country is almost insolvent while its elite are among the world's wealthiest. No accountability anywhere. A lot of the country's economic activity is now in the control of the corrupt, and the mass of ordinary Nigerians get left out.


Corruption is very well protected

There are lots of ways that money or value is removed from the system for private benefit. But it is difficult to do very much about it, especially when the amounts are substantial. In many parts of the world it does not cost very much for someone to be eliminated ... and if some of the recent writing is to be believed, this is not limited to the “south”.
Making Corrupt Money in Fisheries in Burma
A big part of the fishing industry in Burma was controlled by the government through an organization called the Peoeples Pearl and Fishing Compnany (PPFC). PPFC was losing money operating large modern fishing trawlers, which did not make any sense based on the nature of the fisheries resource and the characteristics of the fishing vessels. As a former fisheries and seafood company CFO I knew something about the industry and its operations. I also knew something of the state of the Burmese economy and its shortages. Something was going on.
As part of the World Bank mission we traveled by boat from Rangoon to the mouth of the Irrawaddy River, the same route used by the PPFC trawlers. Many hundreds of small motorized fishing vessels were active near the mouth of the river, and it suddenly became clear what was happening. The large trawlers were supplying fuel to these fishing vessels and making a fortune for themselves. The official price for fuel was 3 and the black market price was around 30 ... so a good profit. And bluntly put, private profit to benefit political leadership and the elite is much more use than the profit from fishing that would accrue to PPFC.
And for small people ... there was another area of opportunity. When I looked closely at the fuel storage facilities I noted that almost all the flanges joining the pipes were leaking ... not a lot, but something. And under every leak there was a small can collecting the fuel. The official economy of the country was not working, but there was an underlying enterprise economy that was alive and well, albeit illegal.
Corruption is very difficult to contain, especially grand corruption. People who benefit become rich very quickly and they can use this wealth to protect themselves in many different ways, none of them very pleasant for people that get too close to understanding the problem and doing something about it.

And there is a lot of money involved, people are willing to do almost anything to get it and keep it. Rules are always going to be applied to the poor and people with limited money, but rich and powerful elites are able to do a lot of things without bothering too much about the rules. When the money is big enough, after all, the laws and the rules get changed.


Poor People ... Human Beings or Pawns

Every person should be treated right

The world does not seem to believe that there is one human race, and that all people should be treated right, that everyone should have some basic inalienable human rights. The treatment of human beings is far too often totally degrading ... and ought to be the source of widespread outrage. Only a few seem to be concerned, and people with wealth and power do not seem to be interested or listening at all.

Economic migration

With extreme poverty in a large part of the world, and stupendous economic opportunity in other parts, it is not surprising that there are massive migrations going on. Economic migration is not new. It has probably been going on since prehistoric times ... but it is aggravated now by the terrible failure of the relief and development sector in the “south”, and the amazing recent wealth creation in the “north”.

People will take huge risks when life is already pretty much impossible, and everything is hopeless.
Escaping from Ethiopia
Ethiopia under President Mengishdu was not easy ... and for some ethnic groups is was especially bad ... and worse for people identified as being against the regime. I knew a teacher who had this profile. In Europe or the USA, she would have been on the fast track, and an asset to the educational establishment. But in Ethiopia she was facing no job ... no money ... no future.
She had determined that she absolutely had to leave Ethiopia. She tried to get a passport, but her money was stolen by the officials ... all of it. She was left with no money and no passport.
With nothing, she decided to walk out of Addis Ababa over the mountains to Sudan ... to the refugee camps on the Sudan side of the border. I know she left. I don't think she arrived. Hardly anybody did.
Laws to limit migration imposed by the “north” can slow the flows but not reduce the pressure. The pressure to migrate will not be reduced until there is progress in making a success of socio-economic performance in the “south”.

People with potential don't have a chance in far too much of the “south”. The domination of peoples by the corrupt and powerful is feature of modern governance and global society that is an absolute abomination ... and widespread.


Brain drain

A flow of intelligent educated people from poor places in the “south” with little opportunity for economic success to rich places in the “north” where there are huge economic opportunities is normal ... it is the way a market economy works. Laws can be passed to stop the brain drain, and people can be coerced to stay where they are ... but again, the pressure to move is not reduced.

Human trafficking

Money is being made by all sorts of unsavory middlemen who engage in human trafficking. There is human trafficking associated with prostitution and the porn industry in its many forms. Though it is usually illegal, it is also profitable, and there is money also to be made from “protection”. There is also human trafficking associated with economic migration ... getting people into Europe ... getting people into the USA. The activities are usually illegal, but the rewards are substantial.

HOME Nav ... L0913-TVM-MMW-000000a Last ... L0913-TVM-MMW-000006 Next ... L0913-TVM-MMW-000008
SITE COUNT Amazing and shiny stats
Copyright © 2005-2021 Peter Burgess. All rights reserved. This material may only be used for limited low profit purposes: e.g. socio-enviro-economic performance analysis, education and training.