Strategic Suggestions for Survival when Providing Public Administration Training in...

This article offers strategies for improving one's technical assistance and training effectiveness in underdeveloped managerial setting. The author's suggestions are based on observations gained while providing technical assistance and training to government officials and civil servants in the

Kingdom of Swaziland during 1998 and 1999. The examples provided relate to Swaziland. Nevertheless, they are applicable in many other similar settings. These survival strategies will be of great value to individuals seeking coping skills in unfamiliar surroundings. This is particularly true for first-time international consultants.

The advent of Internet accessibility, coupled with "light-year" advancements in telecommunication technology, has created significant opportunities for the sharing of program initiatives and policy innovations across nations. From a management and policy perspective, governments and their officials can now readily access and observe information about how other nations address nagging social and administrative problems. As our world's communication structure shrinks, we will witness a rebirth of interest in comparative public administration. This trend has already commenced.

The destabilization of Soviet bloc countries, along with their restructuring, also has led increasingly to calls for technical support and training assistance. These new societies seek assistance to rebuild democratically tailored systems. World financial development sources (e.g., the World Bank and the International Monetary Fund) and Western industrial nation donors also are heavily involved in the provisions of technical assistance and managerial development training to Third World countries. Often these donor sources demand technical assistance as a condition for their funding support. On a daily basis, it is possible to locate requests for developmental assistance and aid from Third World countries. For the most part, academics and seasoned practitioners from the U.S. and European nations have stepped in to meet this need.

This article offers strategies for improving one's training effectiveness in an underdeveloped managerial setting. These suggestions are based on observations gained while providing technical assistance and training to Swaziland in 1998 and 1999. At that time, I served as a Fulbright Senior Scholar to Swaziland s leading training institute on management and public administration. In this capacity, I provided human resource management and public policy assistance to this country s executive, senior and middle level management civil servants. Much of what was learned from this experience is shared here to aid others in their training effectiveness in unfamiliar, underdeveloped settings.

Strategic Suggestions for Survival

Suggestion One: Expect language barriers to exist, even when the host country's official language is the same as your own language.

In Swaziland government, the official spoken and written language is English. Naturally, the expectation would be that a language barrier would not exist, nor hinder, training effectiveness. Nothing could be further from the truth. In Swaziland, the official (i.e., business) language differs from the spoken native language. The observation is significant. While English is the country s official language, it is not the society s dominant language. Thus, in family and community settings siSwati is widely spoken, even by public officials, and is almost exclusively spoken in larger public settings. What becomes obvious almost immediately in this environment, is the fact that many public officials are uncomfortable with English; it is not their first language.

In training seminars, many participants, at best, had only a limited working knowledge of English, thereby limiting the cognitive benefit of the subject at hand. Cognitive comprehension was further complicated by the fact that my English was a foreign form to Swazi trainees. While in London recently, I heard the phrase, "The United States and Great Britain are two English-speaking countries divided by a common language. This points to ambiguity in speech, even when the dominant language is common across two diverse cultures. In Swaziland, barriers based on my spoken dialect proved challenging, as many Swazis struggled with my Midwestern accent. They were more accustomed to English as spoken by British or South African instructors. Thus, English dialect variations may create unexpected problems for the instructor and those she/he is training.

Finally, wide variances existed across training participants in their comprehension of English. In part, this is explained by the fact that, while English is the official language, even in Swaziland schools, it is customarily not spoken in the homes nor spoken among the indigenous population to one another. Those individuals who exhibited the greatest comprehension of my English often had experiences in travel to America and other Anglophone countries. They had been immersed in English as spoken by Americans or by other English-speaking societies.

Suggestion Two: Don't automatically expect that your presence will be appreciated by your host institution even when you have been invited to come.

Training and technical assistance often are initiated at the requests of host governments. This might lead one to believe that his or her presence is highly desired by local institutional associates. Often this is not the case. The presence of an "outside consultant" may be perceived as a threat to the organization's status quo operating approaches. Thus, training means the potential for discovery and change that, in practice, might not be as appealing to existing personnel.

For many on staff at my host institution, this was their first "up-front" exposure to an American. My nationality was foreign to them and somewhat of a novelty. Unfortunately, some of my new associates had formed negative preconceived notions of what to expect from an American scholar. Would he be arrogant and aggressive; rich and spoiled; overbearing and demanding? Sensing these concerns, I chose a softer approach to utilize, so as to dispel these preconceived misperceptions. Gaining their trust and confidence was a prerequisite for working positively with my Swazi colleagues in order to sustain high-quality training effectiveness. This was accomplished by gaining as much knowledge as possible about Swazi history, culture and tradition.[2]

Considerable resentment for my presence existed, for example, due to the housing that was provided for me through the Fulbright grant. The Swaziland government was expected to provide safe and secure housing through the duration of my Fulbright research and training. Therefore, a Swazi government house was made ready for my arrival. Doing this led to resentment from some institute associates, who had been wait-listed for governmental housing, typically provided to higher-level Swazi civil servants. The waiting period for housing had been lengthy, in some instances. Thus, my being placed at the front of the list for housing increased resentment and, ironically, reaffirmed (in their minds) that I was a spoiled American! Fortunately, I realized early on that resentment existed and therefore took measures to be overtly friendly and attentive to the needs of all Institute colleagues.

It is critical to be prepared psychologically for the potential that your presence may be more threatening than welcomed upon arriving at your new destination. It is also important that, as the technical consultant, you set aside your ego and seek acceptance from a potentially hostile host. By anticipating potential hostility, you can begin to devise strategies to win over those possessing ill-informed preconceptions. You might even be pleasantly surprised when the welcoming party appears upon your arrival.

Suggestion Three: Expect to be disappointed with the quality of training resources available at your disposal.

Expect the unexpected when conducting training in under-developed countries. Some of the most common expectations in the classroom cannot be taken for granted in these instances. Electricity, for example, can typically be expected to flow without interruption, in most instances, in the American and European classroom. Such is not necessarily so in many third-world training settings. As an instructor, you must always be prepared to work on an impromptu basis. Highly professional presentations can easily be demolished should electricity fail. Computer-based presentations, for example, will not help the instructor who randomly loses electrical power in such cases. Even backup overhead transparencies cannot help in these instances. On numerous occasions, I experienced these power blackouts that required quick adaptation in presentations with many being conducted in low-illumination classrooms.

Instructors should also be prepared for other challenges. Expectation of equipment availability cannot be taken for granted. Even the smallest teaching aids can be in limited supply. Photocopy machines break down; overhead transparencies and photocopy paper supplies become depleted without rapid replacement; and limited availability of chalk or usable white-board marking pens are all common problems that are frequently experienced in Third World classroom settings.

Other factors may also inhibit one s ability to communicate the message effectively. The loss (i.e., theft) of scarce equipment (e.g., desktop computers, video tape recorders and monitors) occurs with frightening frequency in these instructional settings. The point here is not to paint a bleak picture of training facilities in Third World settings. Rather, it is to suggest that you must think strategically in planning for these types of frustrating scenarios. The true test of your ability as an educator and communicator occurs in these situations, where you have lost many of the instructional crutches that we all count on in normal instructional settings.

Suggestion Four: Realize that "Yes" does not necessarily mean, "Yes."

One must be careful to read between the lines of the society that he or she is interacting with when asking for training documents or public records. Often, "yes" does not mean, "yes," when responses to questions about information or assistance are sought. Why should a response of, "Yes, I will send this to you tomorrow," not be taken automatically to signal that a desired action would occur? First, "yes" to requests for assistance may simply indicate that the individual with whom you are talking does not understand your question, but is afraid to acknowledge this fact. Rather than ask you to restate the question, she or he will respond in the affirmative (e.g., "yes," "okay," "yebo" ) to your request. This will mislead you into believing that some desired outcomes will occur. Having received what you believe to be assurances of assistance, for example, you now will go back to your office and wait for results. Subsequently, you never receive the information and/or the outcome you expect.

Faulty affirmative responses to requests also may occur because the institution seeks to please and/or accommodate you but does not have the financial means to oblige your request. By providing an affirmative response, the responding individual ensures that he or she has not offended you, thereby saving face. In such cases, the hope is that someone else will oblige your need. Alternatively, the true hope may be that you will become frustrated with the system and find another means for rectifying the situation yourself.

In order to ensure that you do get positive results, you need to be persistent with the individual who is assisting you. Speaking directly to the person with authority to act and make decisions may also be necessary. In one instance, I traveled to a store three times to purchase resource materials that I needed quickly. These items were in stock but could not be purchased, because the store clerks did not have the authority to handle money or make the sales. Finally, I asked for the shop owner 's name and home telephone number. Subsequently, I called him to make an appointment to buy what was readily available in his shop. In this instance, his shop was the only store in the capital city, Mbabane, which had the needed items.

Realizing that "yes" might mean "maybe" or, "Give me some more time to think about it," or, "No, but I don't want to offend you," will help when seeking to reach desired outcomes. Be a critical listener, ask for clarification, and seek confirmation of when to expect the desired outcome. Be respectful, however! These approaches will all place gentle pressure on the individual helping you and may aid you in gaining what you need while retaining your sanity.

Suggestion Five: Seek methods for overcoming silence in the training environment.

Training seminars in American settings often evoke a great deal of discussion and debate. This has been particularly the case when working with executive and senior-level personnel. These officials actively point to their own experiences to add to the content under discussion.

In Swaziland, training participation tends to be more subdued. The Swazis are less willing to discuss openly points of disagreement with their instructors or fellow classmates. This holds true even with more senior civil servants. The Swaziland culture is one based on nonconfrontation and nonconflict. Thus, normal points of disagreement often are not presented, even when statements should elicit heated debate. Furthermore, trainees in this setting often sit passively, to the point of not even signaling disapproval through their body language. These culturally-specific behaviors create challenges for instructors, who come into the training session expecting substantial interaction and debate over the course content. This might well be expected in most settings, especially when new ideas and approaches are introduced that may not easily fit when transferred from one culture to another.

A U.S. Department of State (DOS) official to Swaziland told me of one recent example that points out this problem. A DOS trainer came from the States to provide better driving instructions to local foreign national DOS employees. She started the training seminar by asking the Swazi drivers the question, "How many of you consider yourself to be good drivers?" To her amazement, not one Swazi driver working for the Embassy and other U.S. affiliated operations raised his hand. She did not realize that, to do so, would be considered bragging in the Swazi culture. She failed to take culture into account and found great frustration from the lack of active participation among course participants.

Silence in the classroom is also related to the respect granted to the instructor as an authority figure. This surely is not confined to the Swazis but is also common in many other cultures. To overcome this barrier, it is critical that one actively involves the participant base. Action-learning exercises that put the group in the position of decision-making or creating group-based outcomes is one successful approach often used. Secondly, employing case studies that have been developed for, or revised to fit, current cultural parameters also can help move the group towards shared discussion and cognitive development. Breaking through the cultural barriers is critical to sustaining a long-term impact on learned behaviors of course participants. Clearly, research points to higher levels of retention of training content, when trainees are individually challenged through active learning techniques. For this reason, instructors should blend individual and group decision-making exercises and culturally-designed case analysis with conceptual and theoretical elements typically associated with lecture-based education. What one hears is likely not to be remembered, but what one does in class is likely to be learned and reapplied.

Suggestion Six: Respect the fact that you are an outsider when training and when asked for advice.

Visiting consultants and trainers should be cautious when comparing the host country s administrative practices and operational systems with those practiced in their own systems. Clearly, it is easy to find fault in underdeveloped governmental structures, as they often must cope with an inadequate financial base for funding projects, outdated technology to efficiently address existing problems, or inadequately trained human resource personnel to attack the problem. Certainly, as an expert, there are a myriad of suggestions that you could provide to improve operational efficiency and organizational effectiveness. Be warned that your best strategy is to listen carefully before providing advice. Constructive criticism on your part can easily be perceived as arrogance, especially when you begin comparing how things are done here with practices in your country. Unintentionally, it is easy to become the ugly American in the eyes of your host institution or those you are training. When comparative discussion across governmental context occurs, be careful to point out the benefits and drawbacks of both systems. If you are to err on the side of conservatism and be more critical of your own system rather than that of the host country.

Take nothing for granted when thematic content is presented. In one training session, for example, I was discussing the topic, "Entrepreneurism in America." This led to deliberations about Bill Gates and how he had transformed Microsoft Corporation from a small business into the worldwide leading organization in computer software development. Near the end of my presentation, one student asked me to explain again who Bill Gates and Microsoft were. I had mentioned both man and corporation, but not product software that Microsoft produced. It was then that I realized these participants did not recognize whom Bill Gates or Microsoft was. Further discussion about their link to "Office 97," which is heavily utilized in their agencies, helped them make the cognitive connection.

Suggestion Seven: Secure alliances with other institutions to gain access to limited academic resources.

Trainers and technical advisors in Africa often face the challenge of working with severe shortages of up-to-date academic resources. Fortunately, the World Wide Web is gaining accessibility in many African countries. This has aided trainers immensely in their efforts to provide credible and up-to-date information about management activities from a global perspective. As an example, I was asked to serve as a guest lecturer on "American Entrepreneurism" at the University of Swaziland's Faculty of Commerce and Business. I had no on-hand resources on this subject, and none were to be found at my host institution. Through access to the Internet, and based on my knowledge of this subject, I was able to provide a credible presentation of current activities from an American context.

This will not always be the case in Third World settings. Even with such Internet accessibility, it is prudent to develop a network of resource sharing, so as to minimize the time needed to locate resources and materials necessary for enlightening your students. Libraries, in these settings, are often inadequately funded with outdated resources. Linking with regional universities, training institutes, and private providers of training services is a valuable start for locating periodicals, textbooks, video and audiotapes, and the myriad of other resources used to gain and retain students interests. Another valuable source of assistance can come from international agencies within the region. One example might be through the library resources of the United States Information Service (U.S.I.S.). Wherever you find a U.S. Embassy, you are likely also to find a U.S.I.S. library. In my case, the American Cultural Center in Mbabane was a valuable resource center. Other embassies, the European Union, and United Nations offices, among others are also likely to render their information, resources and professional services for your utilization.

Networking with other professionals may also be possible through professional associations, governmental agencies, and historical archives, which retain their own distinct library and data retrieval centers. The point being made here is that you cannot anticipate all of the resources that you will need when facing diverse training challenges in these underdeveloped settings. You will be viewed as the expert in your disciplinary field and will be expected to provide assistance. Most disciplines are quite broad in their scope of knowledge. This is true in the field of human resource management (my area of specialization). Nevertheless, even professionals and practitioners competent in these fields will be stretched with the breadth of requests for training assistance. Therefore, to maximize your effectiveness, you should identify resource bases quickly, upon your arrival, and do some friend raising immediately. The returns on this investment will easily provide dividends beyond the cost of the time and energy expended in developing this network.

Conclusion

You are likely to face immense cultural shock the first time you relocate to a Third World site as a technical consultant or trainer in a new, exciting, yet unfamiliar, cultural setting. The self-imposed pressures to perform will be great. Moreover, your life will be turned upside down for the first few months, until you have readjusted to your new lifestyle. For these reasons, as well as others, it is important that you enter this challenge with realistic expectations about what you can and cannot accomplish. The seven suggestions presented here do not, nor cannot, capture comprehensively all that will be necessary to be effective in your new position. Nevertheless, it is important to enter into this new challenge with your eyes wide open, so as not to be slowed in your progress by unrealistic expectations of what is to be.

By focusing on these suggestions, as well as effectively attempting to preplan as much of your living arrangements as possible prior to your arrival, you will find this adventure into places unknown to be both rewarding and memorable. Furthermore, you will understand better how to provide technical consulting and training assistance when dealing with cultures diametrically opposite from your own. By focusing on these suggestions, as well as effectively attempting to pre-plan as much of your living arrangements as possible prior to your arrival, you will find this adventure into places unknown to be both rewarding and memorable. Furthermore, you will understand better how to provide technical consulting and training assistance when dealing with cultures diametrically opposite from your own.

These experiences will also enrich your knowledge of the dynamic breadth of public administration and the complexity that culture places on effectively introducing new information in other social settings. Moreover, the knowledge you gain will provide additional enrichment and insight for students and practitioners in the classroom back at your own academic institution. Students of public administration, whether at home or abroad, are often eager to learn how other civil servants think, and how decisions are made. You will find, through sharing your expertise while simultaneously being a student of the culture that is receiving your technical assistance, that the outcome will be one that provides greater professional growth, as well as significant personal satisfaction.

Notes

[1] The author wishes to express his gratitude to the William J. Fulbright Senior Scholars Program for its support of this research. Any and all comments mentioned in this study, however, are attributable to the author and do not necessary reflect upon the policies or opinions of the Fulbright Senior Scholars Program or its administrative personnel.

[2] For an excellent overview of Swazi history, see J.S.M. Matsebula's A History of Swaziland and Alan R. Booth's Swaziland: Tradition and Change in a Southern African Kingdom. Swaziland Traditional Religion and Society by Peter Kasenene is also highly recommended for a basic overview of religious and cultural traditions.

References

Booth, Alan R. Swaziland: Tradition and Change in a Southern African Kingdom, Colorado: Westview Press (1983).

Kasenene, Peter. Swaziland Traditional Religion and Society, Mbabane, Swaziland: Webster Publications Inc. (1995).

Matsebula, J.S.M. A History of Swaziland, Johannesburg: Longman Southern Africa(1972).

John L. Daly, Ph.D.
Public Administration Program
University of South Florida
Tampa, Florida 33620-8100

John L. Daly is Associate Professor of Public Administration at the University of South Florida, in Tampa, Florida. His research interests focus on issues in the fields of Human Resource Management, Labor Relations and Public Policy. He served as the 1998-99 Fulbright Senior Scholar to the Kingdom of Swaziland.