The Dilemma of Development Administration: Complexity and Uncertainty in Control-Oriented Bureaucracies

Abstract

While development strategies of international assistance organizations and governments of less developed states have become more complex over the past decade, the methods of planning and management used during the 1960s and 1970s to formulate and implement policies have become less effective. Synoptic planning and scientific management techniques are used to control development activities rather than to facilitate and encourage the flexibility, experimentation, and social learning that are essential. The prospects of improving control-oriented administration are constrained by difficulties in defining objectives; lack of appropriate data; inadequate understanding of local social and cultural conditions; ineffective means of controlling behavior; the dynamics of political interaction; and low levels of administrative capacity in developing countries. Changes that must be made include: recognizing explicitly the uncertainty and complexity of development problems; managing development activities as policy experiments; building widespread administrative capacity; relying on adjunctive and strategic planning; simplifying analytical techniques; creating incentives for error detection and for innovation; and viewing effective program and project management in new ways.