Commodity-Oriented Centres
1. Institution-strengthening has been an important contribution of the Centres from the very beginning. However, for the commodity-oriented Centres, this effect has been more of a by-product than a stated purpose. The chief purpose of these Centres was to improve human welfare in the developing countries through increased production and productivity of specific crops and animals through the generation and dissemination of improved production technology and scientific knowledge for those crops and animals related to their respective mandates. It was clear that such technology and knowledge would have little or no impact unless it was adapted to local conditions and adopted by local producers. Thus, from the very start, it was clear that the Centres would have to work in close collaboration with researchers in the countries where the commodities in their mandates were produced.
2. At first this collaboration was chiefly one of developing relationships through which researchers in the cooperating countries would receive and test improved genetic materials from the Centres, as well as work with their respective technology transfer agencies to disseminate the new varieties. To do this they instituted training programmes to develop a strong cadre of researchers in the cooperating countries who could carry out this task. Scientists from the Centres also made regular visits to the countries where their materials were being tested and worked closely with their collaborators in the evaluation and selection of improved varieties. They found that their collaborating researchers often worked in an institutional environment in which they lacked scientific literature and specialized equipment. Thus, very early in the life of the Centres they developed bibliographic and information services to provide their collaborators with relevant publications and disseminate the results of the collaborative research efforts. In some cases they also provided equipment to help the local researchers carry out their tasks.
3. Soon, Centres progressively moved away from developing finished varieties to sending out advanced generations for selection under local conditions; then to sending our early generations, and later, in the case of NARS that were strongest in breeding skills, to sending out parental material for crossing locally, or inviting breeders to the Centres to select their own materials for crosses. With these developments the relationships between researchers in the Centres and those in the NARS in many cases evolved from one of collaboration to one of partnership. This relationship was enhanced by many workshops, seminars and conferences at which the cooperating scientists exchanged information and progressively influenced the research agenda of their respective institutions. In some cases scientists from the Centres worked with their partners in helping to develop research plans and priorities.
4. As the gap between performance of technological innovations on research station and farmers' practices became increasingly evident, it was clear that two additional activities were needed. One was to train extension specialists. The other was to encourage more on-farm research and technology validation, and to bring a "farming systems perspective" to the technology generation process. Methodologies were developed for diagnostic studies, on-farm research, and farmer participation; and these methods were promoted through training and workshops.
5. As these developments progressed, it became evident that the resources of the Centres were inadequate to carry out all of the activities described above, that components of the NARS had been sufficiently strengthened that they could carry out many of them themselves, and that many of the goals could best be achieved through regional cooperation. Thus, the Centres promoted the development of collaborative regional research networks in relation to their mandate commodities and research areas. At first these were chiefly networks for exchanging materials and other technology and sharing information on their performance. Progressively these networks evolved into effective mechanisms for dealing with production problems of regional importance in a cooperative manner and in a division of labour for such research activities. In most cases initial leadership of such networks was by Centre scientists, often out-posted to the region. Through mechanisms such as Steering Committees, responsibility for setting the regional agendas and allocation of resources was passed on to research leaders from the region, and the involvement of Centre scientists has progressively diminished. Funding for such regional programme has come largely from bilateral donors through special projects.
6. Training has been the largest component of the institution-strengthening activities of the commodity-oriented Centres. From its very inception, in 1962, IRRI established a training programme. Indeed all IARCs consider themselves to be research and training institutions The 1984 Strategic study Of Training in the CGIAR System of 1984 clearly indicated that this is one of the most appreciated services of the CGIAR Centres, and that it has had a significant strengthening impact on the NARS. Most of the training at first was in the form of production training courses and individual internships. Soon, more specialized courses and individual training were also given in disciplinary fields and specific research methodology. As the number of persons trained in these fields has accumulated, and as the Centres have moved "up stream" in their research, specialized training in fields such as biotechnology, genetic engineering, genetic resources management, and natural resources management. Short-term, individual internships have progressively moved from training of young researchers to improving skills of mid-career scientists. While long-term training as a component of higher degree studies has always been an important activity, the proportion of training of this type is increasing.
7. Most of the training courses were initially held at the Centres. However, as the magnitude of the task became evident, especially for young researchers and extensionists, the Centres assisted in the development of in-country courses. As the collaborative research networks developed, much of the production-oriented training has also been conducted on a regional basis. Increasingly, in-country training, especially in the stronger NARS, has included participants from neighbouring countries. Centres have assisted these developments through the development of courseware and the training of trainers. The latter is becoming a major thrust in most Centres.
8. Many of the commodity-oriented Centres have also contributed to the NARS by development of agroecological databases and made them available to the NARS. Initially these were modest efforts designed to help interpret the performance of genetic materials under different conditions, as a aid to interpretation of research results and the selection of parental materials. As the problems of sustainability and environmental issues have become more evident, these services have broadened to GIS databases and land-use analyses.
9. The description of how the collaboration of the Centres with NARS has progressed over time demonstrates that in order to achieve their basic purposes, the Centres have, in the process, contributed substantially to strengthening of the NARS, through training; workshops, seminars and conferences; bibliographic and information services; agroecological and GIS database services; consultation; modest provision of equipment and operational fund; and the development of collaborative research networks. It must be emphasized, however, that such strengthening was largely only of components of the NARS, not of the NARS in a broader sense. Some examples of broader strengthening activities were: training in station operations, training and workshops for library and information services, training in biometrics and research methods, and training in laboratory and greenhouse services. These were isolated activities, however, and the Centres were sometimes criticized for engaging in them. Largely, the strengthening activities described above were for those components of the NARS directly related to the commodities and research areas in the individual Centres' mandates. In many cases a broader institution-management function has been served in that persons trained in for research in a specific commodity have later become national leaders, but this was not the principal aim of the training efforts. This piecemeal approach often achieved less strengthening than was intended, because those trained or assisted by them still had to operate in a broader institutional environment of weak management and leadership, and a policy environment not conducive to the desired impact on productivity. Thus, the CGIAR decided to create two new institutions to deal with these broader issues, ISNAR and IFPRI. With the growing importance of natural resources issues, the CGIAR has also expanded to include institutions that deal not only in research but also in issues of resource management.
ISNAR
10. As discussed above, it was clear that individual commodity programmes strengthened through the efforts of the commodity-oriented Centres did not adequately deal with the great need to strengthen the NARS in which these programmes operated. Furthermore, by virtue of their specific mandates, the IARCs only covered a portion of the large numbers of commodities and research areas that the NARS have to address. The first review of the CGIAR System helped to define the boundaries of the IARCs in relation to institution-strengthening, but it was chiefly concerned that they not transgress these boundaries to the detriment of their essential research functions. To deal with the broader issues, it was decided to create ISNAR.
11. As indicated by its name, ISNAR was created within the CGIAR in the late 70's as an "International Service for National Agriculture Research", with the mandate of assisting developing countries to bring about sustained improvements in the performance of their national agricultural research systems. ISNAR's constitution clearly specified that the purpose of this institution is to help strengthen agricultural research capabilities in developing countries. The ultimate goal of ISNAR's assistance is to enable developing countries to plan, organize, manage and execute research more effectively from their own human, material and financial resources. Additionally the Constitution stated that ISNAR should serve as a linkage between the international agricultural research centres of the CGIAR system and the NARS and as an intermediary to promote bilateral cooperation in the field of agricultural research.
12. To accomplish these goals, ISNAR developed three main functional activities, namely advisory services, research and training. The advisory service is the primary contact between ISNAR and the NARS. Generally the service is carried out in 3 major steps: a diagnostic phase, a planning phase and an implementation phase. The research programme is originally designated to develop solutions to problems detected at NARS level, particularly the development of analytical procedures and management tools for NARS. The training programme is aimed to provide general management training to NARS leaders and/or to senior and middle level managers. This activity, originally carried out mainly at the headquarters, has partially moved to the regions or countries.
13. As an institute with special focus and extensive experience in agricultural research management, ISNAR has strong comparative advantages in performing this role, not only within the CGIAR system but also when compared with other cooperating or donor agencies. Among the main distinguishing features, those which appear of greatest significance are the 3 following ones:
a) ISNAR's services are potentially available to all developing countries. The institute has no political interests and it has the necessary autonomy to make impartial technical and policy recommendations. Its neutrality is a rather unique feature to be highlighted and gives a definite warranty to the diagnostic and planning phase of ISNAR services to countries. Experience (such as ISNAR's support to the reorganization of Uruguay's agricultural research system, for example) clearly demonstrate the great importance of the diagnosis and planning steps conducted under ISNAR assessment. Also, because of its mandate and its goal ISNAR can be reasonably viewed as an "honest broker" among the many actors that sometimes impinge on NARS governments, NGOs, multilateral donors and other IARCs.b) ISNAR's services are based on research and experience. Through its multi-disciplinary research, ISNAR develops and adapts management tools to improve the performance of national systems. Its advice to national systems is, in turn, continually refined in the light of experiences across a wide range of countries. This is also a distinct advantage.
c) ISNAR's long term experience in public sector research management distinguishes it from other research management institutes mainly oriented to private sector management. This is of special significance when considering that CGIAR future research agenda that features the protection of the environment and the management and conservation of natural resources. These areas of research are normally not attractive to the private sector. They will be mostly based at the public institutions of the NARS . And they will require an overall evolution of the NARS and particularly of the NARIs in their programming and functional organization to undertake a research which is different of the classical commodity-oriented type of research the NARS have been conducting until now.
14. During its first five years (1980-1985), ISNAR focused chiefly on Diagnostic reviews of NARS. This service to NARS was well appreciated by them. This favourable impression of ISNAR's impact contributed to the decision by the CGIAR that the institute should continue at the end of the five-year "sunset clause" imposed on it at its creation. The external review of 1985 stated that ISNAR: 1) should strive to be a "centre of excellence"; 2) should develop a "paradigm" on research management; 3) should have experts in priority setting; and 4) should have a programme director at the level of DDG.
15. In 1986 ISNAR produced its first strategic plan. This stated that it is a "research-based service" organization. Its strategy was to improve efficiency, effectiveness and enhanced capacity for planning, organization and management of NARS. It was to take a systems approach incorporating three thematic programme areas: Policy, Organization, and Management. It was to allocate its resources to delivery functions as follows: 50% to advisory services, 25-30% to research (down from 40%), and 20-25% to training (up from 7%).
16. In 1987, ISNAR was reorganized with a DDG for Research and Training and a DDG for Advisory services. Emphasis was to define critical factors for each of the thematic areas, and staff were organized into 12 working groups. The six highest priority groups were: planning and priority setting, organization, linkages, programme formulation and budgeting, monitoring and evaluation, and human resources.
17. The 1991 EPMR ratified the allocation of resources as being Research (25%) Training (17-20%) and the remainder in services. It recommended that ISNAR should pay more attention to synthesizing its country experiences and that it could also appropriately direct some of its research efforts to studying the experiences of agricultural research management in other countries than those in which it has worked. These recommendations tended to confirm ISNAR's characterization of itself as a "research-based service organization", and, indeed implied that the allocation of research should be increased, which might eventually move it in the direction of becoming a "service-based research organization", as is the case for the other Centres.
18. The 1991 Strategic Plan defined three types of Advisory Services: Comprehensive Institutional Development (few countries, multi-year, full system, as a laboratory for development and testing, advisory services and research); Component Strengthening (many countries, shorter term, advisory services and research) and Knowledge Generation and Information Dissemination (all countries, chiefly research, with some training and advisory services), with allocation of resources as: 35%, 40%, and 25%, respectively.
19. As is apparent from the foregoing discussion, ISNAR has struggled over the years over how much of its efforts that should be allocated to services, and how much to research. Its leaders correctly point out that these are indivisible components of the "Research and Development" continuum. In general terms, however, this continuum could be divided into three components: service, development, and research. These can be defined as follows. Service involves activities in support of individual countries. They normally respond to requests from countries, and are often supported by non-core funding from a bilateral or multi-lateral donor. Development activities develop and deliver generic tools to be used in strengthening services, by ISNAR and others. These to some extent a compilation of information and methods developed by others or on the knowledge and experience of ISNAR's staff. ISNAR's ability to develop such generic materials is enhanced by the multi-disciplinary nature of its staff, composed of experienced persons in agricultural research as well as in management science. To the extent that these development activities represent a refinement of tools developed by others, and utilize the experience of earlier ISNAR services, they lap over into the research area. Research involves the compilation and analyses of data from which lessons can be learned to improved the tools developed and the services offered. A partial list of ISNAR activities, using this classification, follows:
Service
· Individual Country Diagnoses
· Advisory and Consultation Services
· Training
Development
· Development of Methods and Tools· Priority Setting
· Programme Planning, Monitoring and Evaluation
· Budgeting and Financial Management
· Research Management Information Systems
· Human Resource Management
· Training Modules and Materials· Delivery of Methods and Tools
· Publications
· Training
· Workshops, Seminars, Conferences
Research
· Case Studies on Specific Topics
· Analyses of Usefulness of Various Methods and Tools
· Analyses of Degree of Success of Various Efforts to Strengthen NARS in Selected Countries· ISNAR Diagnoses and Advice Alone
· Donor Projects Based On ISNAR Diagnoses
· Other Projects
In general terms, ISNAR began mostly at the top end of this list. While it is still engaged in all of these, its emphasis has progressively moved downwards (perhaps the list should be reversed, since this downwards represents an "up-stream" movement . To date little has been done on the third category of the Research list.
20. One of ISNAR's programme areas is policy. This suggest to some that there may be undesirable overlap between ISNAR and the policy activities of IFPRI and the natural resources Centres. In effect there is little overlap, since the ISNAR policy activities are chiefly in the area of research policy, not food, price or natural resources management policies. The chief area of overlap between ISNAR and IFPRI has been in the area of national policies regarding levels of funding for agricultural research. In this area there is close collaboration between the two Centres, as evidenced by the current, collaborative, effort in updating the "indicator series", and the larger, projected "Agricultural Research Indicators Initiative" describe in IFPRI's funding request for 1996. Some of ISNAR's development and training activities have been conducted jointly with other IARCs.
IFPRI
21. In contrast to ISNAR, IFPRI considers itself to be a "service-based research" institution. Thus the strengthening services it provides to NARS are, like the commodity-oriented Centres, a by-product of its research rather than the a primary objective. IFPRI's activities are more fully covered in the section of this Study on "Public Policy/Management Research". Suffice it here to point out that some of the institution-strengthening activities described, above, for the commodity-oriented Centres, also apply to IFPRI.
Natural Resources Management Centres
22. Recently, several new Centres have been added to the CGIAR System (CIFOR, ICRAF, and IIMI). Like the commodity-oriented Centres, these NRM Centres conduct research related to production, in collaboration with NARS partners. Additionally, they engage in activities related to natural resource management policies. Their institution-strengthening activities are similar to those described for the commodity-oriented Centres, above.
