Sustainability failure of donor-supported organisational reforms in agricultural extension : a Bangladesh case study : a thesis presented in partial fulfilment of the requirements for the degree of Doctor of Philosophy (PhD) in Agricultural Extension and Rural Development, Institute of Natural Resources, Massey University, Palmerston North, New Zealand

Abstract

For several decades, international donor agencies have provided considerable support for organisational reforms within the agricultural extension system in Bangladesh. This support has been provided through a series of short-term projects that have experimented with a variety of novel extension systems. These have ranged from the centralised training and visit model to decentralised subdistrict based systems to an even more decentralised farmer-led extension system. They have also ranged from an extension system operated by a single government agency to systems run by a partnership between government and non-government organisations. The experimentation has also involved a country-wide or large-scale system to local or small-scale systems. Furthermore, the reforms have varied from a single organisation providing only advisory services to farmers to a constellation of organisations providing a combination of services. However, in virtually every case, when donor support was removed at the completion of a project, the extension reform was found to be unsustainable post-project. Despite the continued failure of donor sponsored extension reforms in Bangladesh, little is formally known as to why such reforms have been unsustainable. Such knowledge is critical if donor-assisted extension reforms in Bangladesh are to be effective and sustainable. Therefore, the overall aim of this study was to determine the reasons why a donor-supported extension reform becomes unsustainable in Bangladesh. From a review of literature, a conceptual framework was developed outlining the conditions/factors under which organisational systems or innovations supported through donor projects do, or do not, become sustainable. Using a qualitative single case study approach, a poorly sustained extension reform supported through a donor project was investigated in depth in Bangladesh. From this investigation, a model that explains the non-sustainability of a donor supported extension reform in Bangladesh was developed. Several theoretically important findings were identified in this study. The extension reform was poorly sustained because the principles underlying the reform lacked cultural legitimacy. This problem was compounded due to the presence of perverse institutional forces in the operational context, and because the extension agencies concerned lacked adequate human and financial resources. The sustainability of the extension reform was also compromised because of poor implementation performance, complex design, parallel modes of project implementation, a failure to develop recipient ownership, and poor capacity to learn and adapt the reform. The mechanisms by which these factors influenced the non-sustainability of the reform are described in detail. The results from this study suggest that the sustainability of donor-supported extension reforms cannot be achieved within the short time frame set out in most projects. Nor can such changes be sustainable unless they are aligned with the norms, values and traditions of extension agencies and rural people. In particular, sustainability will continue to be a serious challenge unless the perverse institutional incentives confronted by extension agencies and rural people are minimised. The donors concerned in Bangladesh should support a locally-owned and single reform idea rather than undertaking haphazard projects with varied ideas, improve inter-donor coordination and come up with a coordinated decision of not providing monetary incentives to extension agencies and rural people, support extension reforms according to the felt needs of recipients, and stop providing aid in the event of repeated failures.