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Eindhoven University of Technology
MASTER
The development of a scheme information system at the planning and developmentdepartment North-West Frontier Province, Pakistanproblems while developing and using a computer-based information system at a publicadministration in a developing country
Heuvelman, Egbert
Award date:1993
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The development of a scheme information system at the Planning & Development Department
Nortb-West Frontier Province, Pakistan
Problems while developing and using a computer-based information system
at a public administration in a developing country.
Egbert Heuvelman, July 1993
Supervisors Drs. H.C.J. Gaillard Prof.Dr. D.K. Hammer Ir. E.L.C. van Egmond-de Wilde de Ligny
PREFACE
This report represent the analyzed experiences of a field study in Pakistan, during the period November 1991 to May 1992, concerning the development of an information system.
Both the field study and the report writing bas been executed as the final research for achieving a Master of Science title in "Technological Development Sciences" at the Eindhoven University of Technology, the Netherlands. The development of the Information System bas been carried out for the bilateral "Strengthening of the Planning and Development Department, NorthWest Frontier Province, Pakistan" project (SP&D), executed by Euroconsult and financed by DGIS.
During the six months field study in Peshawar I worked together with several Pakistani in the Planning and Development department (P&D). In this respect I would like to thank all the colleagues from the Data Processing Cell (DPC) for their hospitality during my stay in the office. More specific I want to thank DPC deputy chief Mr. Mohammed Shafique, who I also met in Japan, for the discussions about the background issues in the P&D organisation. Thank also to Mr. Hamid Hussian for introducing me in the Pakistani world of information systems, to Mr. Farooq Ahmad for bis critica! comments due his insight in complex matters, and to Mr. Shakir Mamoon Abbasi for bis practical support. Fortheir dedication during the system analysis I specially thank Mr. Muhammad Asim Khan, Mr. Akhlaq Ahhmed Mir, Mr. Thahir Rizwan and Mr. Shahid Mamoon Abbasi.
The work feit within the framework of the SP&D project. In this respect I would like to thank the projects memhers for their company and help, and more specific the project manager Mr. J. Nijzink, who spend quite an effort in both the formaland practical part of the exercise, Mr. G. Abbink and Mr. Sarmarl Khanfortheir stimulating cooperation, Mr. S. van der Meij for bis investigations for this research exercise, and Mr. Iqbal for bis assistance in dealing with the Pakistani bureaucracy.
The support of Euroconsult was indispensable, and in specific I want to thank Mr. W. Cornelissen and Miss. N. Willemsen for their help during the preparations.
During the whole period I have received practical moral and practical support from friends. I wish tomention Pjotr, Jelle and Hayo fortheir critica! comments, and Heleen who showed me the positive side of hard times.
Last butnotleast I want to thank my supervisors in the Netherlands, Drs. H.C.J. Gaillard, Prof.Dr. D.K. Hamroerand Ir. E.L.C. van Egmond-de Wilde de Ligny, all who contributed to the results of this research.
1
TABLE OF CONTENTS
PREFACE i
TABLE OF CONTENTS u
LIST OF FIGURES, TABLES AND BOXES tv
LIST OF ABBREVIATIONS AND GLOSSARY v
SUMMARY vi
1 INTRODUCTION 1
1.1 RESEARCH BACKGROUND 1
1.2 STRUCfURE OF RESEARCH AND REPORT 2
PART 1: THEORY 4
2 DEVELOPMENT OF COMPUTER-BASED INFORMATION SYSTEMS 5
2.1 DEFINITIONS: DATA, INFORMATION (SYSIEM), MIS 5
2.2 MANDAL & COMPUTER-BASED INFORMATION SYSTEMS 6
2.3 USE OF MODELS 7
2.4 INFORMATION SYSIEM DEYBLOPMENT METHOOS 8
2.5 STRATEGY FOR SELECTING METHOOS 10
2.6 SUMMARY 11
3 COMPUTER-BASED INFORMATION SYSTEMS IN PUBLIC ADMINISTRATIONS OF
DEVELOPING COUNTRIES 13
3.1 INFORMATION TECHNOLOGY IN THE SOCIO-ORGANISATIONAL CONTEXT 13
3.2 PUBLIC ADMINISTRATION IN DEYBLOPING COUNTRIES 14
3.3 INFORMATION TECHNOLOGY IN THE PUBLIC ADMINISTRATIONS OF DEYBLOPING COUNTRIES 15
3.4 EXISTING AND NEW APPROACHES 16
3.5 SUMMARY & CONCLUSIONS 17
PART 11: METHOD 18
4 DESCRIPTION PLACE OF RESEARCH 19
4.1 PAKISTAN: BIRTH, GROWTH AND CURRENT SITUATION 19
4.2 NORTH WEST FRONTIER PROVINCE (NWFP) 21
4.3 PLANNING AND DEVELOPMENT DEPARTMENT IN NWFP (P&D) 21
4.4 STRENGTHENING THE P&D PROJECT (SP&D) 23
5 ÜBJECTIVES OF TUE TECHNICAL RESEARCH 25
5.1 AlM AND OBJECTIVES 25
5.2 METHOD 25
6 ÜBJECTIVES OF TUE SOCIAL DEVELOPMENT RESEARCH 27
6.1 AlM AND OBJECTIVES 27
6.2 METHOD 27
11
PART 111: RESULTS 30
7 RESULTS SYSTEM DEVELOPMENT METHODOWGY PHASES 31
7.1 INFORMATION PlANNING 31
7.1.1 FuNcnONAL AREAS OF TIIE P&D 31
7.1.2 ÜRGANISATIONAL STRUITURE AND MANPOWER 32
7.1.3 ÜBSERVED INFORMATION MANAGEMENT SHORTCOMINGS 34 7.1.4 INFORMATION POLICY OF TIIE P&D 35
7.1.5 INFORMATION DEVELOPMENT PLAN OF TIIE P&D 36
7.1.6 SELECTION OF MEASURES TO BE EXECUTED 37
7.2 DEFINillON STUDY 38
7.2.1 SCHEME RELATED AcnYITIES 38
7.2.2 SCHEME RELATED AcnYITIES WITIIIN TIIE P&D 42
7.2.3 SHORTCOMINGS OF SCHEME RELATED AcnYITIES WITIIIN TIIE P&D 43
7.2.4 REQUESTED IMPROVEMENTS 44
7 .2.5 SIS SYSTEM DEFINillON 45
7.3 PRELIMINARY DESIGN 47
7.3.1 PROCESS MODEL 47 7.3.2 ARCHITECTURE OF DATABASE 51
7.3.3 ENTITIES OF TABLES 54 7.3.4 'PROCESSES TIMES DATA' MODELLING 59
7 .3.5 FURTHER DESIGN STEPS 59
7.4 EVAWATION OF SIS DESIGN 60
8 SURVEY OF PROBLEMS 63
8.1 WORKING ENVIRONMENT: DPC 63
8.2 COUNTERPART AND PROJECT TEAM MEMBERS 63
8.3 LEVEL OF UNOERSTANDING 64
8.4 ABILITY TO IMPROVE KNOWLEDGE 66
8.5 EVAWATION OF OBSERVED PROBLEMS 67
9 CONCLUSIONS AND RECOMMENDATIONS 69
NOTES 11
KEFERENCES 76
APPENDICES A-1
A RESPONSIBILillES AND THE ORGANISATIONAL STRUITURE A-1
B POSSIBLE ORIGINS AND/OR REASONS OF OBSERVED SHORTCOMINGS DURING TIIE INFORMATION
PLANNING PHASE A-3
C PROJECT PROPOSAL A-4
0 0ESCRIPTION OF "PROJECT LIFE CYCLE" AND TIIE "ADP PROCESS" A-ll
E SCHEME STATUS A-13 F TEXT SHEET "AcnVITY DIAGRAM OF SCHEME RELATED AcnVmES WITIIIN TIIE P&D" A-14
G ADP DATABASE/PROGRAM STRUITURE 91/92 A-16 H 0ESCRIPTION OF SCHEME DATABASE TABLES STRUITURES A-20
I 0ESCRIPTION OF TARGET ENTITY TYPE A-33
J 0ESCRIPTION OF SIS PROCEDURES ON SCHEME DATABASE A-35
111
LIST OF FIGURES, TABLES AND BOXES
FIGURES
2.1: Types of information systems, and their relationships 5 2.2: Example of "information system development method" setup 9
7.1: Organigram P&D 33
7.2: ADP process within the pubtic administration of Pakistan 40
7.3: Scheme related activities and the P&D share 41
7.4: Activity diagram of current Scheme related activities within the P&D 42
7.5: Procedure relationship model of proposed Scheme related activities for the P&D 49
7.6: Bachman diagram of SCHEME DATABASE tables 53
7.7: 'User view' of financial entities in FIN- and FEC-tables 56
7.8: Specification of Actual allocated entity 57
7.9: Example screen of target entity in the Scheme database program ('User view') 58
TABLES 2.1: Strategies for determining information need 11
4.1: Sectoral growth in Pakistan, 1950-87 20
4.2: Sectoral specification of "provincial Annual Development Program 1991-92 22
7.1: Objectivesjtasks of the P&D 31
7.2: Functional areasof the P&D 32
7.3: Manpower at the P&D 34
BOXES
7.1: INFORMATION MANAGEMENT SHORTCOMINGS within the P&D, 1991 34
7.2: INFORMATION POLICY for the P&D, 1992-1994 35
7.3: INFORMATION DEVELOPMENT PLAN of the P&D, 1992-1994 36
7.4: SCHEME RELATED ACTlVITIES for the pubtic administration of NWFP 39
7.5: "SCHEME RELATED ACTIVITIES" SHORTCOMINGS within the P&D, 1992 43
7.6: SCHEME RELATED SP&D STUDIES within the P&D, 1991/1992 44
7.7: FUNCTIONAL demands SIS 45
7.8: INFORMATIONAL demands SIS: Entity types SCHEME DATABASE 45
7.9: EFFECTIVITY demands SIS 46
IV
LIST OF ABBREVIATIONS AND GLOSSARY
a.o. ADP BA BOS BPS BSc C&E DPC e.g. EUT FATA FEC GNP I.e. IBM ISAC MSc NEC NWFP P&D PC PC-1 PC-2 PC-3 PC-4 PC-5 Rs. SDM SIS SP&D UNIDO USAID
and others Annual Development Programme 21
Bachelor of Arts Bureau of Statistics Basic Pay Scales 34
Bachelor of Science Communication and Works department Data Processing Cell 63
exempli gratia (for example ... ) Eindhoven University of Technology Pederal Administered Tribal Areas Foreign Exchange Component Gross National Product id est ( that is ... ) International Business Machines cooperation Information System work and Analysis of Change methodology Master of Science National Economical Council NorthWest Frontier Province 21
Planning and Development department 21
Personal Computer Planning Commission proforma, project proposal Planning Commission proforma, project surveys and feasibility studies Planning Commission proforma, quarterly project reports Planning Commission proforma, project completion report Planning Commission proforma, review on project Pakistani Rupees (1.Rs. = 0.044 US$, 1992) System Development Methodology 25
Scheme Information System Strengthening of the Planning and Development department project 23
United Nations Industrial Development Organisation United Nations Agency for International Development
V
SUMMARY
With the research programme elaborated in underlying report it was firstly aimed to imprave the decision making process within the Planning and Development department (P&D), concerning scheme related issues, by the development of a computer based information system. Secondly, it was aimed to identify constraffits for applying information technology within this public administration, focussing on problems that local system developers face during the development process.
Information systems are used to support specific decision making processes within organisations. Models for analyzing those processes are indispensable to handle the complexity of this matter, and, for the communication between the system analyst and users. Various rnadeis are applied at different abstraction levels, and can be placed within the framework of an information system development method. Many methods are available, but no single methad is optima! for all situations. Selecting an appropriate system development methad is determined by the strategy followed, which on turn depends on the situational factors. The situational factors in public organisations of developing countries differ significant from those in the Western world. The literature describes major obstacles while developing information systems, and illustrates that the Western style of information systems development is not appropriate for the given context. The literature has no real answer on this problem, in spite of attempts for designing appropriate system development methods.
The research describes the development process of the information system, and follows the framework as provided by the System Development Methodology (SDM). To understand the situational factors for the P&D, the organisation gets described, extended with the results of a preceding study. The impravement of scheme related information management activities is chosen, comprehending the Annual Development Program process (ADP) and the Project life cycle, whereafter the development of the new Scheme Information System (SIS) can start. This is done by elaborating the scheme related activities for the Pakistani bureaucracy in genera!, and for the P&D in specific, resulting in a better understanding of the decision making process. Impravement of the observed shortcomings of those activities, combined with recommendations of related studies by the SP&D, results in the specifications of the SIS. The further development of the SIS deals with a formal description of procedures to perfarm during bath the ADP process and the project monitoring, and the according database architecture that is supposed to support those activities. This design, although not completely ready for implementation, is finally evaluated.
Furthermore the research deals with the socio-organisational problems, occurred during the system development process, and focussed on problems that the local system developers faced. The operation of the current systems are related with the level of understanding by the involved parties, whereafter the ability to imprave knowledge is discussed by the observations made during courses. The lack of support by the management, and the insufficient professionallevel of system developers are found as the major restrictive constraints during information system development, and get evaluated.
Vl
1 INTRODUCTION
1.1 RESEARCH BACKGROUND
With the introduetion of computers in the administrative sector in the sixties, a new era in information management started. This type of technology influenced sametimes steadily, sametimes radically the set up of organisations. With the introduetion of the relatively cheap Personal Computer (PC) by IBM in 1981, the applications of automated information management could extend towards smaller busmesses as well.
The procuring of the PC has been also significant in the so-called developing countries, as I experienced workingas a programmer in Nicaragua and Peru (1988) and duringa study trip to Kenya (1990). The impact of those PC's was nevertheless often disappointing compared to the investments made.
Since the late eighthees an increasing number of scientific studies has been published about the above made observation, and many recommendations foliowed out of them, reflecting both teehoical issues as socio-organisational matters.
Finalizing my study in the Technological Development Sciences department at the Eindhoven University of Technology (EUT), the problem definition of this research was formulated as follows:
"What are the possibilities of introducing computer-based information systems within the pubZie administration of a developing country like Pakistan?"
A literature study was performed in the Netherlands. The fieldwork was executed together with the computer technicians at the Planning and Development department (P&D) of the North-West Frontier Province (NWFP), in the province capital Peshawar. During this 6-month period in Pakistan an information system was developed and an inventory of socioorganisational problems while developing the system was made. Back in the Netherlands, this list has been compared with the literature and some items have been elaborated into more detail while general conclusions of this type of technology for this type of situations has been drawn too.
The Personal Computer, as the prime-mover for this type of technology for the given context, has been considered as a minor item.
This report deals both with the development of the information system (main item), as with the analysis of problems (sub-item).
1
THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
1.2 STRUCTURE OF RESEARCH AND REPORT
The basic structure of a this research is presented by the flow-diagram in figure 1.1.
The theory, based on the scientific literature, describes the 'art of the state' knowledge for the research subject. Differences between the literature and the obtained research results are applied for refinement of the theory.
The metbod will first describe the context in which the research is executed (e.g. geographical situation, field), and thereafter the aim, research objective, and methad used during research. The results are an accurate description of the fulfilment of the research objective. The results are evaluated by a feedback to the research aim and objectives. The method and results constitute together the core activity of the investigation, or the first skin.
In the conclusions the results are compared with the theory. Differences between the results and the theory will be used to advice follow-up studies by formulating recommendations. The theory up to the conclusions constitute the overall activity of the investigation, or the second skin.
RESULTS
.First Skin .. rr====l'====i
CONCLUSIONS &
RECOIIIENDATIONS
. .Second Skin •...•....•...•.•.••.•.....
FIGURE 1.1: Basic structure of research
The investigation presented in this report follows the above structure in two-fold, with the emphasises on the first subject: 1. Technica! science (The development of an information system). 2. Social development science (The analysis of determined problems of this type of
technologyin the given context).
The development of the information system must be considered as the main subject of this research with respect to the invested time, performed activities and dept. The complexity of this matter for the given context did not leave much time and energy over within the 6-month field investigation period. As a consequence the inventarization of problems have a limited and less structural character. In order to upgrade this matter, a more extensive literature study has been performed as presented in the Theory part of this report.
2
1 INTRODUCTION
Because both subjects are still related with each other the basic research structure of figure 1.1 will he doubled into the parallel research structure as presented in figure 1.2, where the 'common interest' parts are shared. The latter represents also the structure of the report by the indication of part and chapter numbers in the left-upper corners of the boxes. By consulting figure 1.2, one is able to choose any preferred subject and still see its context within the whole report. For example, if one is interested in the technica! core-part of the study, chapters 5 and 7 will do.
TECHNICAL SCIENCE SOCIAL DEVEWPMENT SCIENCE
PART I THEORY
2. Development of computer-based information : 3. Computer-based information systems in public systems. : administrations of developing countries.
I PART 11 METBOD
4. Description context: - Developing country = Pakistan - Public administration = Planning & Development Department (P&D) - Project = Strengthening P&D project (SP&D)
S.Aim: 6.Aim: To improve scheme related 'decision making To identify constraints for the development and processes' within the P&D. application of computer-based information systems in
public administrations of developing countries.
Research objective: Research objective: To support both the 'data processing' and 'decison Determining and analyzing problems that restrained making' activities of scheme issues, by the local system developers in the development of the SIS development of a computer-based Scheme at the P&D. Information System (SIS).
Method: Method: System development methodology (SDM). Explorative case study during the SDM development
phases of the SIS.
I PART lil RESULTS
7. SDM Phase: 0 Information planning 1 Defmition study 2 Preliminary design
.. Evaluation of SIS design • 8. Survey of observed problems
I I 9. CONCLUSIONS AND RECOMMENDATIONS
FIGURE 1.2: Structure of this research (With 'parts' and 'chapter' numbers)
I
3
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
PARTI:THEORY The next two chapters are dealing with computer-based information systems (chapter 2) and the application of this technology in developing countries ( chapter 3). Chapter 2 starts with the basic aspects of information systems, which will emerge finally into the 'selection of methods' for developing the automated variant. Chapter 3 will elaborate the socio-organisational context in which information systems are used, and focus thereby on applications within the environment of public administration in developing countries.
2 DEVELOPMENT OF COMPUTER-BASED INFORMATION SYSTEMS 5
2.1 DEFINITIONS: DATA, INFORMATION (SYSTEM), MIS 5 2.2 MANDAL & COMPUTER-BASED INFORMATION SYSTEMS 6 2.3 USE OF MODELS 7 2.4 INFORMATION SYSTEM DEYBLOPMENT METHODS 8 2.5 STRATEGY FOR SELECTING METHODS 10 2.6 SUMMARY 11
3 COMPUTER-BASED INFORMATION SYSTEMS IN PUBLIC ADMINISTRATIONS
OF DEVELOPING COUNTRIES 13
3.1 INFORMATION TECHNOLOGY IN THE SOCIO-ORGANISATIONAL CONTEXT 13 3.2 PUBLIC ADMINISTRATION IN DEYBLOPING COUNTRIES 14 3.3 INFORMATION TECHNOLOGY IN THE PUBLIC ADMINISTRATIONS OF DEYBLOPING COUNTRIES 15 3.4 EXISTING AND NEW APPROACHES 16 3.5 SUMMARY & CONCLUSIONS 17
4
2 DEVELOPMENT OF COMPUTER-BASED INFORMATION SYSTEMS
2.1 DEFINffiONS: DATA, INFORMATION (SYSTEM), MIS Like in most specialized sciences, the professional jargon used in the arena of information systems developers and scientists needs explicit understanding. This will be done by giving definitions1 of relevant items and by descrihing the relationships between them.
Data and information are not the same abstract things, in spite of mixed verbal and written use within many organisations.
Data is objective perceptible description of [acts or knowledge, stared on a for that purpose destined medium by such way the data can be exchanged.
Information is the sense a person gives or parses to data, according certain conventions, and is used to support decision making processes.
Data has to be ennobled befare it becomes information. Consequently, information exist out of associated and interpreted data. In analogy with the (physical) production process in a factory the (abstract) information can beseen as the final product, while data can beseen as raw materials. Example: Data is the fact, you can read from the speedometer, that you are driving 140 Km an hour on a raad. But with the knowledge that 80 Km an hour is the speed limit on this secondary raad, and the such achieved awareness that you are trespassing and can get fined by a pollee patrol, the data becomes information which will perhaps influence your further driving behaviour.
Data can be used by a system to obtain information. A system is a structure of elements, with the aim to obtain a certain objective or result.
Examples of systems are transport systems, computer systems, weapon systems, and information systems. Many systems contains the human factor by i.e. employees.
Consequently, an operating information system (IS) within an organisation can be defined as ... ... the whole of people and equipment that process data into information, to support the decision making process while realizing certain objectives or results of the organisation.
Three types of information systems can be distinguished (see figure 2.1): 1. Transaction processing system (data base). To record 'state of things' changes in the
surroundings or in the management situation. 2. Structured decision system (SDS). To process recorded data according to fully structured
and formalized procedures. 3. Decision support system (DSS). To support a decision maker with significant data for
"what-if' simulations.
SDS DSS Decision support system
k----------------· ·----------------~ I I
.-----~·--------------------~------Data base
Transaction processing system
FIGURE 2.1: Types of information systems, and their relationships
Information systems can be used for primary data processing within an organisation only, or for general management functions. The latter is named a management information system
5
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
(MIS), and exists out of a database in combination with a DDS andjor SDS. A management information system is an integrated user-machine system for providing information to support the operations, management, analysis and decision maldng functions in an organisation. The system utilizes computer hardware and software, manual procedures and models for analysis, planning, control and decision making, and a database2
•
The information system discussed in this report is a sort of MIS.
The next paragraphs in this chapter will not further elaborate the 'components' of an computer-based information system, but focus on the aspectsof developing one. Doing so is justified consiclering the fact that many designs of information systems failed as a consequence of a wrong development approach3
• Even the 'choice to automate' is debatable and will be elaborated below.
2.2 MANUAL & COMPUTER-BASED INFORMATION SYSTEMS4
By discussing the decision-making process within organisations in relation with information systems, the 'correspondence' between the manual and the computer-based information systems will become visible.
While developing an information system the type and occurrence of data, as transacted by the system, has to be defined rather precise. If not, the future decision making process will surely suffer from an incomplete, incorrect or outdated data supply due the poor specifications for the data supplier in an other place of the organisation. lf an organisation would try to avoid this incompleteness by collecting an exaggerated amount of data, they would he hampered by losing count of the numerous reports. Data that does not actually support the decision-making process within an organisation does not represent information and is irrelevant or even disturbing. This phenomenon is named 'information congestion'.
While developing an computer-based information system above considerations will become significant: mistakes and shortcomings in the design will be punished inexorable when operating the finalized information system, because the detected irregularities are mostly difficult to correct5
.
However, manual information systems are much less sensitive to design mistakes due the fact that people are able to improvise (by intuition and common sense) and therefore able to bypass irregularities.
On the other hand, proper designed and working computer-based information systems can easy be extended to do powerful bulk activities, like statistica! calculations, arranging data in any order and other calculation intensive tasks. Manual information systems in contrast need often a disproportionallarger investment to do so. See it as the surplus value of the autornaled version.
Therefore the next conclusions may he drawn: An automated information system can in principle be implemented by a manual version, or, the other way around argued, if an organisation is oot able to operate a manual information system, the automated version will neither6
•
This evidently also accounts for organisations that are actually trying to introduce an information system with the motivation of solving their malfunctioning by automation 7•
6
2 DEVELOPMENT OF COMPUfER-BASED INFORMATION SYSTEMS
Thus, if an information system does not directly need calculation intensive tasks, a manual information system can he still an appropriate option, and probably cheaper as well if problems are to he expected.
2.3 USE OF MODELS Information systems are designed to support specified decision making processes within organisations by supplying the needed information for the decisions. Therefore this information need is to he known, and farms a part of information system development. However, the determination of this information need is aften hindered by the complexity of the matter, as related to the limitations of humans as information processors and problem solvers. Moreover, the specialized type of languages used will causes communication problems between the system analyst and users8
•
The use of models opens a way, to a certain extend, to control the above mentioned 'loss of track' and 'confusion of tongues' problems.
A model is a way to present the relevant part of the reality as a 'system' consisting out of elements (objects), static relations between those objects (structure), and dynamic relations between objects (behaviour).
This introduetion in the 'aim of models' opens the way to describe four models as used during information system development, started with the example above. J Thus, to define the information need, there is a need for conceptual in formation models (of management situations), also knowas SYSTELOGICAL MODELS. They record who has what decision information needs, when and how. lt will help to make an inventory of the information needs in communication with the users. The models have a pragmatic nature, e.g. data-meaning for specific processes, data presentation, time aspects, responsibilities of the users, casts.
Those 'pragmatic concepts of information' are used to describe data and processes as elementsin 'production processes of information', what is performed by INFOLOGICAL MODELS. They form a bridge between the users and automation experts, as far it can reach. The models cover the semantic aspects of information systems, e.g. souree data determination, objective meaning of data.
Now the data part of the above production process will get formalized. This is done by tracing down the exact look of data, and results are united in DATALOGICAL MODELS. They constitute the explicit part of the information system by almast 'mathematica!' descriptions of the data in relation with allowed actions on it. Those models are focused on the syntactic aspects, e.g. coding and file structure arrangement.
During the last step, final translations are made from the datalogical models into physical surroundings by means of IMPLEMENTATION MODELS. They describes what technica! means are going to he used and how applied, both reflecting hardware and software issues. The models describe the technica! part of information systems, e.g. the arrangement of computers in network configuration.
The four model types9 covers a global overview of used 'analysis and communication' tools for system developers and clients, and represent various 'abstraction levels' of the development process. They are used in the next paragraph to illustrate the models, as applied by a method.
7
THE DEVEWPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
2.4 INFORMATION SYSTEM DEVEWPMENT METHODS
To develop an information system successful one needs a method. Methods are the detailed means for achieving an objective, and represent a way of thinking and working while dealing with a scientific or practical problem.
Each methad has it own technics and tools Technics are used to identify for what specifi.c problem one has to select what type of tooi, and how to apply it. The tooi itself is the (possible automated) operational instrument.
The variety in development methods published in the literature is large. This can be explained by the numerous types of organisations and/or activities to automate, each with specific decision information needs. lt is not easy to select an appropriate one for a given situation. A closer elaboration of the available methods is therefore needed.
To get a grip of how a methad can look (in abstract terms) an oversight is presentedof a methad by figure 2.2. It indicates eight development steps10
, each identified by the rounded boxes. Those steps are found in many other methods. The output of the first six steps are indicated by the narnes of applied models within the parallelograms, the same type of models as discussed in the farmer paragraph. Main activities performed within a single step are indicated by the rectangular boxes. Lines and arrows show the flow of models into activities within the next step. Left of this figure a model type indication11 is drawn conform those of the farmer paragraph.
The development steps get in a early stage a bilateral character due the division of the 'information production' into a process side and a data side. By distinguishing both sides, the decision making process will be understood better when implementing the information system in a computer program respectively in a data baseu.
The activities in this example can be considered as technics. The models are tools, that on itself can be used as part of a technic for selecting other tools.
The logic of all eight steps is somewhat understandable by their names, order, activities and outputs, however a construction is put on to note 13
• The example is just an illustration of what can or should be performed during the development of an information system.
After this example a better distinction between methods is needed. Two main groups of methods can be identified14
:
1. Development supporting methods, descrihing technics and tools (further discussed below) from information analysis up to implementation ones ("How");
2. Project phasing and controlling, descrihing ways to follow the project performance with respect to her set out goals ("What"-"When").
An example of the first methad is ISAC (Information System work and Analysis of Change) developed in Sweden, and of the latter is SDM (System Development Methodology) from the Netherlands.
8
2 DEVELOPMENf OF COMPUfER-BASED INFORMATION SYSfEMS
( Step ) (Real world) Model types
Activity c ) ..............
Object analysis
/output/
Process Data side si de
,--------------i--------------~ Logical design
,---- __________ ;, ______ ,. __ Building
c Conversion and introduetion ) * ( Followup )
FIGURE 2.2: Example of "information system development method" setup. Source: [Vandenbulcke, 1983] (for woricing see note 13)
9
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
Another distinguishing is the approach foliowed by a method, also seen as the characterization of a method. Those characterizations comprehends, for example, the next extremes15
:
Functional versus technica/. The functional approach sees the technica! means as a black box just to support the functions of the organisation, while the technica! approach tries to optimize the technica! possibilities. Top-down versus bottom-up. Does the method start at management level, and goes thereafter down to the wishes of the users, or does it follow the opposite way? Mostly a combination of both is desired by an iterative approach. Data orientated versus process orientated. Are first the data models designed and thereafter the processes defined to maintain the data, or do the processes determine what data is needed to support the processes? (example in figure 2.2 contains both) Future fixed versus current system. The choice between forgetting the current situation and looking for the optima! future system, or trying to optimize the current system.
For so far the methods as a way to develop an information system. In the next paragraph a selection criteria is discussed concerning the determination of information needs. This determines in many ways the method to apply for a given situation.
2.5 STRATEGY FOR SELECfiNG METHODS For selecting an appropriate methad one needs to know the strategy to follow, and combine that with a fitting method, one with the according characterization.
Strategies are general approaches for achieving an objective, and determine the 'kind of' method to apply.
Strategies for developing an information system depends on the situational factors, like the type of organisation involved, the knowledge of the development team, the 'understanding' of activities to automate, and so on.
An important measurement tooi for is the level of uncertainty of the information situation, that is, the complexity of the desired system related to the quality of both the system developers and users. A practical instrument is given in table 2.1. This table put the strategy for determining the information need, an important activity of the development process, next to the situational context that determines the level of uncertainty. The kind of method that fits best for the strategy is described as well. When one knows the characterizations of a method one is able to make a selection.
By use of the selection table and with the help of the listed characterization of methods a preliminary instrument is created to make a first selection out of many methods currently available. However, the used method, technic ortooi itself is no guarantee for success. Creativity in applying and combining the available methods, technics and tools is probably still the art of successful information system development.
10
Strategy
Oberstrategy: ( questioning users)
Reference strategy: (Using existing systems as reference framework)
Development strategy: (Careful analysis and structuring of the objectsystem and the to develop information system by information analysts and users)
Iterative or evolutionair strategy:
2 DEVEWPMENT OF COMPUTER-BASED INFORMATION SYSTEMS
TABLE 2.1: Strategies for determining information need (With level of uncenainty for a given situation)
Methods
* Interviews * Inquiry * Brainstorming * Delphi method
* Comparing of objectsystem with similar objectsystems
Preferenee for strategy when:
* Problems are able to be defmed well
* High knowledge and experiences of users
* Limited number of users *Weil trained information experts
and considerable experiences with system involved
* Problems are able to be defined well and stabie in time
* Reference system must be a good image of desired system
* Critica! success factoranalysis . * No reference system available * Socio-technica! analysis ~ * Problems are not very well to defme. * Decision or operational ~ * Knowledge and experience of users ~
research oriented approach i is moderate i * Process oriented approach and~ * Information experts of high level ~
process oriented methods l * More complex information system ~ with numerous system interfaces ~
* Prototyping * High uncertainty of specifications * Data oriented methods * Strongly growing development of
information need * Users and information experts lack
the assessment to develop in a whole the information system
Sources: [Davis e.o., 1984] and [Bemelmans, 1987]
2.6 SUMMARY
Level of uncertainty
Low
High
This chapter started with definitions of subjects within the field of information system development. Thereafter a warning towards the 'fanatic' system developers was placed to underline the relativity of 'computerized tools' for the support of information management.
The next part was mainly focused on information system development methods. This matter is rather abstract if no feeling exist with the nature of the purposefut activity itself and therefore groups of 'communicating and analyzing' models were presented, as frequently used during system development.
Thereafter the actual methods for developing information systems itself were discussed and illustrated by an example. One that covers the 'life cycle of information system development', a type of phasing as applied by many others. Also did this example indicated the difference between processes and data, elements of information production, by reserving separate flows both with respect to activities and tools.
In the last paragraph the problem of choosing a method was abstracted in order to avoid a impossible long list of constraints. This finally resulted in an instrument that supports such a selection, as it is applied in this report ( see chapter 5).
The socio-organisational side of information system development will be found in the next chapter, as it is used to illustrate the special nature of applying information technology in developing countries.
11
3 COMPUTER·BASED INFORMATION SYSTEMS IN PUBLIC ADMINISTRATIONS OF DEVELOPING COUNTRIES
This report deals with the application of a certain technology, basedon a certain science, and applied in a certain area, or, the development of an information system in a developing country. For the 'exact sciences' accounts that its application should not be hindered by national borders or whatsoever. Information systems are however not that universa! applicable, and this chapter will elaborate the difference in the applying information systems for developing countries from the industrialized ones. Or as Willy Brandt once said:
·~ refusal to accept alien models unquestioningly is in fact a second phase of decolonization. We must not su"ender to the idea that the whole world should copy the modelsof highly industrializing countries"1
Befare doing so a short introduetion in the non-technica! side of information technology will provide the conneetion between farmer chapter and this one.
3.1 INFORMATION TECHNOWGY IN THE SOCIO-ORGANISATIONAL CONTEXT
In the farmer chapter a rational approach was foliowed to describe the development of information systems within organisations, focused on the 'decision making processes' and implicit assuming it as being determinable. This was certainly not a complete story, if consiclering for example the constraints that the human factor plays within organisations.
So far an organisation relles on humans a computer system should be viewed as being a part of its information system: a computer-based information system is always complemented by manual procedures as well as informal ways of communication and actions developed by the personnel. Thus, the effectiveness of a computer-based information system can only be considered within its braader organisational context2
•
This 'awareness' has not been developed in the industrialized countries over one night, but was the result of two succeeding effects:
People with the requisite experience and administrative skilis became available to develop good operating procedures, and the experience gained at the operationallevel contributed to development of methods at the technicallevel3•
Consequently new methodologies considered the importance of socio-organisational characteristics of information systems in both research and practicé.
This generation of methodologies guide the development of information systems by an intervention of organisational changes far beyond the development of a new technica! system itselF. So can be explained that in the industrialized countries many management information systems have been applied successful at the operational and tacticallevels for some time.
Nevertheless, aseach organisation is a unique case, effective interventions require careful analysis of particular organisational circumstances, such as existing procedures, norms, attitudes, relations, etc. Those analysis are always done on the basis of some general understanding of the nature of organisations and human behaviour within them6
• lt need no argument that information analysts or other information system experts will be more successful in understanding the socio-organisational context if they operate in their own culture.
13
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
3.2 PUBLIC ADMINISTRATION IN DEVEWPING COUNTRIES7
After stressing the significanee of the socio-organisational context while applying information systems, the 'area' of interest get discussed as an introduetion for further elaborations.
Developing countries are in general characterized by a wide range of attributes, like poverty, gross disparities in income distribution, high level of inflation, high birth-rate and overpopulation, poorly development financial, administrative and politica! institutions, significant non-wage farming sector, permanent high levels of unemployment or underemployment, etc. Nevertheless, the group of developing countries includes countries as different in resources, population, history, culture, religion, prevailing ideology and many other factors.
Most of the pub/ie administration in developing countries have been shaped under colonial regimes or under influence of 'protecting' super-powers in order to support the interest of the foreign ruler. lt reflected the values of the industrial states of the nineteenth century, values that were in most cases totally different from those of the traditional societies. After national independenee these type of organisations have taken a significant and highly politica! role, that of planning and implementation of the national development process. The main goals are formulated in the domain of nation-building and socio-economie development.
In comparative studies of public administrations the administration of developing countries is usually classified as one categorfl and characterized by a number of common patterns, most of which are perceived as problematic. Typical socio-organisational, economical and politica! oriented patterns are9
:
* Shortage in trained administrators with management capacity, development skilis and technica! competence.
*
*
*
'Orientations' are other than production-directed. If seen from the traditional side:
Status based on ascription rather than achievement; Reeruitment and promotion according to loyalty rather than merit;
If seen from a dysfunctional side: Corruption Maintaining a surplus of public employees to relieve the problem of un-employment.
Formalism. Both the informal bypassing of procedures, as the exuberant use of formal procedures. Imbalance between policy-making institutes and policy-implementing structures. The separate ideology role of the politicians and the instrumental role of the bureaucracy is undermined by politica! power of civil servants with the expertise and prestige.
It is not said that the above patterns are only found in the developing countries, but the intensity of this characterization dominates that of the developed countries by far.
The consequences of those observations for the application of information technology, with the accent on the management information system applications, follows next.
14
3 COMPUTER-BASED INFORMATION SYSTEMS IN PUBLIC ADMINISTRATIONS OF DEYBLOPING COUNTRIES
3.3 INFORMATION TECHNOWGY IN THE PUBLIC ADMINISTRATIONS OF DEVEWPING COUNTRIES Users of computers in developing countries are mostly found in banks, insurance companies, govemment institutions and the bigger enterprises, in more or less the same way as when information technology was first introduced in the industrialized countries, and much for the same reason. The public sector is aften the biggest computer user, partly due the to a relatively small private sector, but also due the considerable share by military applications.
However, the use of computers in many developing countries is characterized not only by low utilization but also by limited benefit to the user. Three main categodes of problems10 can be observed: 1. Operational problems, due to technica! constraffits and lack of skilied personnet 2. Contextual problems, as to the weak fit between the Western style design and applications
in Southem contexts. 3. Strategical problems, refer to the diffusion of computer technology and how scarce
resources are to be best utilized in the computerisation process. The three groups are very much interrelated and actdressing a problem in one group can not be done without consictering the other types of problems.
In the specific field of computer-based management information systems, the 'contextual' problems will need a further elaboration. This is done by abstracting the problem of information systems and relating this to the actual context, the public administration, in which it is placed.
"The most basic problem in informaties is to show the problem-solvers that the value of information, which on turn wil/ create a demand for information systems, is a basis for the generation of a social intelligence and effective decision-making at every level"11•
The appearance of this problem in 'our context' is formulated by the next perception.
The design and implementation of a new information system requires an ability to search for solutions to perceived problems, and steer changes in the organisation accordingly. This ability is aften too limited in public administration institutes in developing countries as projects are likely to face the following obstaclesu: * Inadequate scientific and managerial support. The development of an information system
is started by the selection of appropriate methad and that this choice is determined by the situational factors ( see paragraph 2.6). This choice of suitable methods is of crucial importance and is a particularly demanding task which requires deep understanding of both the socio-organisational environment and the system under development. Lack of indigenous skilis to support this activity has the risk of a poor match between a expatriate consultant's approach and managerial style within an organisation's culture.
* Formalistic environment hinders requirement analysis. In cases of strict farmallties covering a substantially different reality of informal behaviour, or where politica! behaviour takes place under a cover of a formal bureaucracy or where gross dysfunctions like corruption exist, the necessary investigations of organisational affairs to determine the need for change is a task beyond the capacity of most system analysts.
Possible solutions to those obstacles will be discussed by some different views in the next paragraph.
15
THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
3.4 EXISTING AND NEW APPROACHES
According to models or theories that describe organisations in industrialized countries, public administration institutions in developing countries often appear 'only' as inefficiently or irrationally functioning enterprises. This is not surprising consiclering that the administrative rationality and the discipline of information systems share the same philosophical and scientific roots, the latter been 'created' by memhers of industrialized nations. Also according to accepted Western ideas this would mean that the introduetion of information systems has to he accompanied by extensive re-organisation in order to fulfil objectives of organisational effectiveness. For most public administration in developing countries this will result in radical socio-organisational changes and comprehends actions like13: * Changes in key positions, so that their bolders are facilitators rather than harriers to the
desirabie reforms. * An extensive education program which both legitimates the new rationality and produces
the skilis required to introduce and support it. * Familiarization of the employees with the new organisational behaviour, incentives for a
productivity orientation. * Changes in the legal framework governing the institutions. Simplification of inter and intra
institutional bureaueratic procedures, in cases where public administrations is so tightly integrated that decision taking is complicated and the authorization for actions delayed.
Obviously, such a process is beyond the capacity of system analyst or any other information systems experts to steer. Similarly, expatriate consultants on technica! and organisational subjects can have only a limited, although important, role in the transformation process. They may contribute technological and scientific knowledge but most probably their understanding of socio-organisational factors is inadequate.
Alternative models for the development of information systems in the context of development countries are in a preliminary stage. One case study14 observes that the formal-rational perspective of organisations are not fruitful and promotes the so-called "social paradigm approach" as a highly appropriate due that it incorporates the context, infrastructure and history of the organisation involved. An other study15 argues that 'rationality' is not unequivocal between cultures, and promotes the so-called "multiview methodology" as a possible alternative to solve problems.
A third similar looking but more elaborated approach is given by a study that shows the 'explaining value of models': modelsas applied during the development of information systems16
• It argues that models do not have the same explaining value for different cultures, like a language is determined by a culture, or more strongly, a language belongs to a specific culture. Examples of mis-matches between the Western model approach and the Southern reality are drained back to observations like:
"The Western culture does not contain concepts for simultaneous thinking about reality and indeterminateness. "
and therefore the 'contingency theory' from the sixties is applied in the development context. It concludes that the reality in developing countries is more complex than assumed and that there is a need for new thinking towards alternative models rather than for new technics.
The recent date of those studies illustrates the preliminary stage of the information sciences focusing on developing countries, and thus no instant solutions are available yet.
16
3 COMPUfER-BASED INFORMATION SYSfEMS IN PUBLIC ADMINISTRATIONS OF DEVELOPING COUNTRIES
3.5 SUMMARY & CONCLUSIONS The 'state of art' of information system development methods in Western organisations was drawn in order to emphasize the 'recognized' significanee of the socio-organisational constraints while designing and introducing this kind of technology.
Thereafter, the public administration within the area of developing countries was characterized to illustrate the typical socio-organisational context.
The application of Western style information technology in those public administration was traeed down by following one specific type of problem.
This opened a way to evaluate the pure Western style of problem solving and resulted in the 'relative value' of doing so. Specialist appeared to be woricing on the problem, but no solutions are yet available.
As conclusions are drawn that if computer-based information systems are to contribute to the elimination of dysfunctional characteristics of public administration, they should he part of a long program of far reaching reforms. Politica! issues should not he considered as an annoyance to technological progress but as a significant aspects of the socio-organisational context. The application of Western development methods (and the including technics and tools) need special care.
In the next part of this report the 'context' of the research object is drawn, whereafter the aims, research objects and applied methods are given.
17
'fHE DEVEWPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISI'AN
PART 11: METHOD This part of the report introduce the reader in the context where this research is executed by descrihing the organisation and 'surroundings' (chapter 4), whereafter the objectives, aims and applied methods are presented for both the technica! science ( chapter 5) and the social development science ( chapter 6). The latter two represent the introduetion for the results of chapter 7 respectively chapter 8, both belonging to the next part of this report.
4 DESCRIPTION PLACE OF RESEARCH 19
4.1 PAKISTAN: BIRTH, GROWfH AND CURRENT SITUATION 19 4.2 NORTH WEST FRONTIER PROVINCE (NWFP) 21 4.3 PLANNING AND DEVELOPMENT DEPARTMENT IN NWFP (P&D) 21 4.4 STRENGTHENING THE P&D PROJECT (SP&D) 23
5 ÜBJECTIVES OF THE TECHNICAL RESEARCH 25
5.1 AlM AND OBJECTIVES 25 5.2 METHOD 25
6 ÜBJECTIVES OF THE SOCIAL DEVELOPMENT RESEARCH 27 6.1 AlM AND OBJECTIVES 27 6.2 METHOD 27
18
4 DESCRIPTION PLACE OF RESEARCH
4.1 PAKISTAN: BIRm, GROWfH AND CURRENT SITUATION
"Pakistan is both a Persian and Urdu term. ft is composed out of the beginning letters of the countries of origin, being Punjab, Afghanistan, Kashmir, Iran, Sind, Turkharistan, Afghanistan and Baluchistan. ft means the country of the Paks, the spiritual pure and symbolist our religious fait. "
This pronouncement is made by Chaudhuri Rehman Ali, who was in the thirties the leader of a in Cambridge (United Kingdom) constituted group muslims. By using the name Pakistan, he and his fellows created a historica! foundation to strive for a separate state for muslims in the Indian subcontinent.
In the turbulent post WW-11 period became Pakistan at the 14th of august 1947 into being as a result of the partition of British India. It comprised areas which were on the politica! and economical periphery of the British Empire. With a population at that time of 75 million inhabitants, it became also the greatest muslim state in the world. The country was divided into East and West Pakistan, separated by about 1,600 km of Indian territory. In 1971 the east part of Pakistan separated itself into Bangladesh, and lived since than its own history.
After this pre-natal introduetion the rest of this paragraph will describe the growing-pains of a country in genesis towards the situation today, whereafter the backbone of the society will get elaborated by descrihing the educational system in Pakistan.
Economical development1
The country's economie problems at the time of creation were compounded by the upheavals and bloodshed following the partition, during the migration of the Hindu population to the India partand Muslim population to the Pakistan part. Next to the created refugee problem, the dispute with India extended to the subject of the vital irrigation measures (80% of the Pakistan population depended on agriculture for a livelihood). By international arbitration in 1960, the Pakistani were helped by a massive World-Bank aid in order to construct two big dams for the elimination of the water shortage. However, the relation between both countries never became normalized while Pakistan spends large sums on its defence. As a consequence to this unproductive safety-investment, Pakistan became indebted to Western nations for fulfilling its foreign exchange requirements.
Notwithstanding these inherited problems, Pakistan turned out to be fortunate in many ways. During the Korean war of 1950-53, Pakistan became the world leader in exports of jute (grown in East Pakistan, now Bangladesh). The first half of the sixties, the country was able to establish a modest industrial basis, and it made rapid progress in agricultural growth. It was during this period that Pakistan began to be cited in international aid circles as a 'model of development'. After the war of with India in 1965, this thrusts was disturbed by suspicions from the Western supporters towards Pakistan government.
The seventies were characterized by a nationalizing government of large-scale industry, banking and insurance, resulting into a an incompetent state bureaucracy. After the military coup of General Zia ul-Haq nationalization was abandoned as a government policy, and fresh investments was encouraged in the private sector, which was promised security by the regime. The business community remained suspicious for several years but eventually became less so. This policy was in some way successful: average annual growth was more than 6%, intlation was brought under control, and essential commodities were available without difficulty or rationing.
19
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
Cycling weather in the eighties conditions hampered the production of food, but planners were able handle this to a certain extend by financial and administrative arrangements.
The economical performance since the existence of Pakistan is presented by table 4.1. 1t shows a somewhat capricious pattem, with the lowest performance in the seventies. The recent growth rates are however promising.
Current situation
TABLE 4.1: Sectoral growth in Pakistan, 1950-87 (Annual averages in %)
1950-60 1960-70 1970-80 1980-87
Agriculture Inclustry
2.3 8.1
SoUl-ce: [Taylor, 1991]
5.2 9.1
2.3 2.3
3.4 8.9
Nevertheless, up to the present moment there has been little progress made in dealing with structural problems in the economy. Four reasons can he identified: a. There is a difficulty of raising sufficient resources through the taxation system to cover
government expenditure. In fact, to cover the burgeoning budget deficit the Gaveroment has had to resort to large-scale dornestic and international borrowing.
b. There has been insufficient long-term investment in the private sector. c. There is a very large informal or 'black' economy in Pakistan which distorts patterns of
investment in the official economy and is linked to smuggling and other illegal activities d. There has been a chronic imbalance in Pakistan's trade pattem (with imparts repeatedly
exceeding exports) which, again, has led to heavy dependenee on foreign aid.
Outside the narrowly economie sphere there are features of Pakistani society which undoubtedly hold back growth. Archaic educational and administrative systems which have changed little in many ways since the colonial period mean that Pakistan's abundant human talent cannot he fully utilized and many of its gifted young people move abroad. The population growth rate of 2.7% per year is also more than can he coped with, whatever the long-term capacities of the country's resources.
Pakistan comprehends these days about 120 million inhabitants (10th of the world) and covers an area of 800 thousand sq. km (20 times the Netherlands), and thus a density of 150 persons per square km. With a GNP per capita of $370 (1989) Pakistan belongs to the Lawineome economies. However, in spite of an average 2.7% growth of population a year, this GNP per capita raises with an average of 4.9% a year. A considerable share of this growth is originated by Pakistani who find their incames in the Middle-East petroleum industry (same as the export incomes). The recent Gulf-crisis has proven how sensitive such an iocome structure is: Pakistan belongs to the top-ten worst affected economies due this crisis.
Education2
At independenee in 1947 Pakistan retained the education system which had been designed by the colonial British administration in India. Efforts to introduce educational reforms and to expand educational facilities were hampered by lack of finances. However, in 1972 the Pakistan Government formulated a new Education Policy which envisaged the enforcement of elementary education and an adult programme, and emphasized the study of Islamia -the ideological basis for the existence of Pakistan- and the introduetion of an agro-technical bias in school education. All institutions except missions were nationalized and most colleges that
20
4 DESCRIPTION PIACE OF RESEARCH
and universities became co-educational, although there are colleges that admit only females. In 1985, according to estimates by UNESCO, the average rate of adult illiteracy in Pakistan was 70.4% ( rnales 60.1 %; females 81.4% ). Literacy rates tend to vary widely between provinces and are extremely low in rural areas. In rural areas mainly mosque-schools are found and have a three-year course focused on religious matters.
Universa! and free education is a constitutional right, but less than one-half of Pakistan's children actually receive it, and education is not compulsory. The government expenditures between 1978 and 1987 on education was about 7% of the total expenditures. In other Asiatic countries this percentage is on average 12.7%.
4.2 NORTH WEST FRONTIER PROVINCE (NWFP)
Pakistan is divided into six administrative divisions: four provinces and two federal administered areas. The NorthWest Frontier Province (NWFP) is the smallest province by geographical size and houses 14 million inhabitants. The provincial Government is settled in Peshawar (600.000 inhabitants), a bistorical trading city due its' strategie position in front of the Khyber pass, a pass that connected the East with the West since thousands of years.
The NWFP and the province Baluchistan are considered as the probiernatie area's of Pakistan due the backward living conditions for the major part of the population, living without good drinking water on a poor diet and little to no access to education or medica! facilities. Another point of concern for the NWFP are the illegal activities. The black economy has its strongholds here, and, for instance, the money markets and drugs smuggling all originates from these areas3
• This area 'exports' more drugs than the golden triangle in East Asia. Above this all does the NWFP give shelter to 3 million civil war refugees from Afghanistan.
The NWFP is headed by a Governor, who is appointed by the President of Pakistan, and is advised by a Council of Ministers. The Chief Minister of this council is appointed by the Governor. The NWFP has a provinciallegislature consisting of the Governor and Provincial Assembly. The Planning and Development Department (P&D) is one of the line departments within the overall provincial government structure, and is discussed in the next paragraph.
4.3 PLANNING AND DEVEWPMENT DEPARTMENT IN NWFP (P&D)
Since Pakistan had linked itself with the Western allied anti-communist states in the mid fifties, its request for economie and technica! assistance were considered sympathetically by Western donors and thus creating the basis for organized economie planning.
The instrument for economie planning is based on a two level approach according the time span covered: 1. Five-Year Plan; Formulated by the Federal authorities and covering the planning
objectives and budget allocations for the considered period of whole Pakistan; 2. Annual Development Programme; Yearly translations of the Five-Y ear Plan into a
Federa~ Provincial or FATA programmes, all abbreviated by "ADP". Every ADP is represented by an ADP book with a list of the according development projects.
The first national Five-Year Plan became in 1955 into being, and the eighth one is to be
21
THE DEVELOPMENT OF A SCHEME INFORMATION SYSfEM AT THE P&D, NWFP, PAKISTAN
started in 1993. The successes of the five year plans up to now have been varying over the years4
•
The Planning and Development department (P&D) of the Government of NWFP is the key planning body for the province. It is established in its current form since 1970, and should in principle render guidance and coordination to all provindal planning activities of development programs. The P&D acts as the intermediale authority between the Federal authorities (Five-Year Plan) and the ADP's for the province, as executed by other departments.
For the 1990-91 fiscal year the P&D budget for development programs was Rs. 9,457 million ($:$400 m.US$). TheProvincialADP of 1991-92 allocated Rs. 4,189 million ($:$186 m.US$) to 1314 developing projects.
The development strategies outlined for NWFP are maximum resource allocation and emphasis to social sectors and development of backward areas. To become familiar with the actual allocation policy of the NWFP, as outlined and coordinated by the P&D, a sectoral oversight of allocations of the Provindal ADP for 1991-92 is presented in table 4.2.
TABLE 4.2: Sectoral specification of "provincial Annual Development Program 1991-92" (with relative budget shares in Local and FEC)
Relative share in Number of projects ADP 1991-92 budget
Tot al FEC Local FEC Tot al Sectors # # % % %
AGRiaJLTURE 13 13 14 Agriculture 82 11 5 10 7 Forestry 32 5 1 3 2 Rural development 58 7 5
INDUSTRY 23 24 23 Water & power 66 7 5 Industry 29 2 2 20 7 Minerals 16 8 1 4 2 Transport & communications 88 13 9
SERVICES 64 63 63 Physical planning & housing 508 2 18 7 15 Education & training 276 6 23 37 27 Heal th 108 2 15 17 15 Social welfare 23 Manpower & training 6 . .. Research & development 20 1 2 1 Mi scellaneous 2 5 4
+ • = < 1 1314 38 100 100 100 %
-- = None = = FEC = Foreign Exchange Component 3000 1189 4189 M.Rs. FEC project of , .. , is SP&D (see paragraph 4.4) = = 1 Rs. = 0.044 US$ (1992) 133 53 186 M.USS
In this table 14 sectors are distinguished in the three main-sectors. Per sector the total number of development projects are given (new and ongoing on es). Projects can vary significant in size, thus the 'budget share' of projects in a sector is used as indicator of the sectoral elfort rather than the number of projects within a sector. Individual projectscan have a foreign exchange component (FEC), and if so, this is mostly donated by foreign donors5
•
The absolute budget amounts are given in the right-lower part of the table, both in Pakistani Rupees and in US dollars.
22
4 DESCRIPTION PIACE OF RESEARCH
A closer look to the numbers in table 4.2 will help to identify certain policies for both the Pakistani authorities as for the foreign donors. The local component outranges almost three times the FEC of the total ADP budget, but the number of projects with a foreign exchange component (38) is about 3% of the total number of projects: the projects with a FEC are relative large, compared to their local-only fellows. Between the rnain-sectors the FEC share is almost identical with the local component: the foreign donors pay same attention to agriculture, industry and services as the Pakistani authorities. Within rnain-sectors the differences between 'politica! interests' appear. For instance, Agriculture is twice as much 'appreciated' by foreign donors than by the Pakistani authorities, while for Physical planning & housing the opposite accounts. It looks that foreign donors are almost fanatic for Industry (20% of budget) , but only two FEC projects are counted, thus it is better to avoid drawing conclusions for this case. The absence of significant financial support in the Social welfare sector is remarkable, in spite of the numher of projects that make use of it.
The single FEC project within the Research & development sector is the Strengthening P&D project (SP&D), the sponsor of this research, and will he discussin the next paragraph.
4.4 STRENGTHENING THE P&D PROJECf (SP&D) A hilateral group of ex:perts6 indicated the following prohlems within the P&D organisation in relation to her performing tasks: * Neglect of certain planning tasks such as development a medium/long term development
strategy and monitoring and evaluation projects. The proforma developed hy the Planning Commission (PC-3, PC-4 and PC-5) for monitoring and evaluation are sporadically used.
* The current output of P&D, the ADP, does not satisfy the requirements to he met hy an annual development plan or a public investment programme.
* Lack of coordination in planning schemes7 funded from different sources. * Delays in the approval of development schemes (projectsjprogrammes). * Non-compliance by linejattached departments with guidelines prepared by P&D to
design schemes. * Lapse of training opportunities.
While reminding the description of public administrations characteristics of paragraph 3.2, it will be no surprise that as underlying causes were identified:
Quantitative understaffing of P&D. Qualitative understaffing. Frequent mismatch occurs between qualifications and duties of individual staff. Insufficient personnel policy and staff development activities. Ill defined responsihilities within the P&D. Insufficient coordination mechanism and too much centralized decision making. Insufficient contact and communication between 'field' and 'centre'. Unnecessary complicated and time consuming procedures. Project are insufficiently formulated (ill prepared PC-ls8
)
Lack of institutional memory ( documentation/lihrary).
23
'fHE DEVELOPMENf OF A SCHEME INFORMATION SYSI'EM AT THE P&D, NWFP, PAKISTAN
Apart from these, a very straight complaint went to the politicians: ·~ pervasive force in planning are the MNAs, Senators and MP As with constituencies in NWFP. The grown practice of their involvement in planning facilities means that they have a considerable influence on the location of facilities such as schools, health facilities, rural roads and water supply schemes in their respective constituencies. The role they have to play in planning (facilities) should be such that local priorities are reflected in the ADP in a coordinated way'~
Above list is formulated in 1992, but indications of it were recognized already in 1988 when the first discussionstook place between the P&D of NWFP and the Netherlands embassy in Islamabad. Those negotiations formed a basis for the set-up of an development project with as aim to improve the above identified shortcomings. The 'job' was awarded in September 1990 to "Euroconsult" (leading consultant) for providing advisory services to the project.
There was a delayed start in the project of about one month due the Gulf crisis, and three expatriate advisors arrived in early february 1991. The team was completed early April on arrival of the Pakistani advisors, and after the reeruitment of local staff the project became operational.
Objectives SP&D The new project, the "Strengthening of the Planning and Development department" (SP&D), had as long tenn objective:
To strengthen the P&D, to he able to efficadously and effidently coordinate, without major external assistance the ongoing development activities in the NWFP in line with development polides pursued by the Provindal and Federal government.
As immediate objectives were identified: * Defining the data base requirements for development planning at the provindal level. * Enhancing the capadty to collect and process relevant data through training and the use
of suitable computer facilities. * Promoting the use of relevant planning techniques and supporting the analysis of macro,
sectorial and sub-regional development potential of NWFP. * lmproving guidelines and procedures to draft project proposals for inclusion in the ADP.
The first two immediate objectives enclosed two proposed studies within the SP&D project: Data base analysis; with as aim to identify data lacking satisfactorily perform present (planning) functions and to identify data gaps that actually prevent P&D to perform functions it otherwise coals. Functioning of Data processing Celi/Bureau of Statistics; with as aim to assess the flow of data to, through and between DPC and BOS and to recommend measures to enable them to cope with the increasing demand for data.
Both studies are related with information technology issues and a short mission system analyst from Euroconsult made preliminary investigations in November 1991. The findingsof this expert are the input for the research in this report, and the next chapter deals with the aim, research objective and metbod of it.
24
5 ÜBJECTIVES OF THE TECHNICAL RESEARCH
5.1 AlM AND OBJECfiVES This research is executed within the Planning & Development department under the auspices of the Strengthening P&D project in order to support the first two immediate objectives of this project as described in paragraph 4.4. This research is a follow up of the investigations made by van der Meij and comprehends the "Redesignfdevelopment of the Scheme Data Management application", one of the advised follow-up activities1
.
The aim of the technica! part of this research is: To improve scheme related 'decision making processes' within the P&D.
The given context at the P&D, that of an organisation with allocated computer facilities for scheme data processing activities, enforces to specify the research objective as follow:
To support both the 'data processing' and 'decison making' activities of scheme issues, by the development of a computer-based Scheme lnformation System (SIS).
The way to achieve this research objective is determined by the foliowed method. This choice is made in the next paragraph.
5.2 METHOD
For the project phasing and cantrolling method (paragraph 2.4) of the information system development the choice was made on the System Development Methodology (SDM) due its proven success in the Netherlands. The life-cycle of an information system, according to SDM jargon2
, describes the next 7 phases, starting with 0: 0. INFORMATION PLANNING: Befare being able to start building any information system, the
question ''why what system" has to be answered by means of a development plan. This plan is subtracted from the short and long term objectives of the organisation, and from the policy foliowed by the organisation. The development plan also indicates the order of the 'to be developed' information systems.
1. DEFINITION SfUDY: This phase deals with the system demands specification of the 'to be developed' information system, and describes the starting-points for it. Also, if needed, a total-plan and a cast-benefit analysis for the to be designed system are drawn up.
2. PRELIMINARY DESIGN: Refining of the system demands and the development of the system design up to a level that separate subsystems can be distinguished, developed and introduced.
3. DETAIL DESIGN: Refining of the subsystem system demands up to a level that the introduetion of specific components can actually take place, resulting in a blue-print of the whole information system.
4. REALISATION: The purebase of hard- and software, and the creation and testing of bath manual and automated procedures.
5. INTRODUCTION: During this phase all the activities and procedures, neerled to introduce the new developed information system, take place.
6. OPERATION AND MAINTENANCE: The last phase of the process has to guarantee that the system meet the (new) demands of the organisation, and that the existing systems keeps operational under normal circumstances, and during exceptional situations.
25
'fHE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
Chapter 7, dealing with the result of this research, is described according SDM and starts with information planning (Phase 0) in spite of the fact that this research was actually started with a definition study. This is clone to include the preliminary work of van der Meij and to describe the organisational context.
For the selection of development supporting methods the strategy is foliowed of paragraph 2.5: the situational factors of the environment are used to select the nature of a methad by consulting table 2.1. The situational factor for the SIS environment cao be defined as:
Bureaueratic organisation with un-transparent processes; Low level of experiences for both the users and system developers; Camparabie object system in other provinces3
, but different information system operational;
According this list combined with the table the best choice for determining the information need would be the iterative strategy. However, the according 'data oriented' methods would certainly be too limited due the nature of the ADP process4
: many procedures with results depending on each other. On the other hand could prototyping be useful due its demonstrative nature with the unexperienced users. The relative short period to do so is however a rather restrictive constrain for prototyping. Therefore, with respect to the development supporting methods, a symbioses between process oriented technics and prototyping was chosen, by using technics and tools of ISACS and other available or own designed tools.
In the next chapter the socio-development objectives are drawn.
26
6 ÜBJECTIVES OF THE SOCIAL DEVEWPMENT RESEARCH
6.1 AlM AND OBJECfiVES The aim of the socio-development part of this research is:
To identify constraints for the development and application of computer-based information systems in pubtic administrations of developing countries.
The theory describes that the inadequate scientific support (Paragraph 3.3) farms an obstacle for the design and implementation of a new information system. More specific it argues that the lack of indigenous skilis makes it difficult to do so, while on the same time the indigenous are neerled for their understanding of the organisation.
The development of the SIS has been clone by a 'local' project team with certain 'qualifications'. This made it attractive to focus on the above matterand is the research objectives formulated as follow:
Determining and analyzing problems that restrained local system developers in the development of theSIS at the P&D.
6.2 MErnon This research is an explorative case study with a descriptive nature. Consequently the conclusions drawn out of this study will have no generalizing meaning apart from being valid for the P&D itself1•
The research objects are the 'Local system developers' that are, or have been involved in information systems within the Data Processing Cell (DPC) of the P&D.
Todetermine problems for the current system in development also the experiences with farmer developed systems are needed in order to identify patterns. The data collection is clone through the next sources: a. Study of developed systems.
System documentation of former systems and operational systems are used as souree to identify system development shortcomings.
b. Interviewing key-persons to reeover development experiences of farmer systems. Key-person can be P&D personnel or extemal advisors. Results of 'Developed systems' are used to interview key-persons (see 'interview' below).
c. Observing events that possibly cause problems in future system development situations. Deviations in the daily routine operations within the DPC used as source.
d. Observing problems that created delays in the SIS development process; Collecting data while participating within the 'case'. Courses with project team are part of the development process. Results of work project team considered as data.
e. Study of literature to identify known problems. Chapter 2 of this research and other literature related with system development.
Ad b. Discussed items in interview: Reason for development; Specification system; Method of development; Used technics; Modifications during development; Achlevement objective; Operational and rnainterrance aspects.
27
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
The collected data is arranged in two problem groups. Problems related to: 1. the level of understanding in information technology, at a management and operational
level; 2. the ability to imprave knowledge in system development, for local system developers Both groups are related to the current respectively future situation of applying information technology. Analysis of observed problems in combination with the literature resulted in the preliminary conclusions of the socio-organisational part of this research.
The results of this survey are presented in chapter 8. The survey observations in combination with the development of the SIS itself results in the final conclusions of this report, and are given in chapter 9.
28
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
PART ill: RESULTS The next two chapters are dealing with the 'technica!' information system development at the P&D ( chapter 7) and with the 'social issues' observations made during this development process ( chapter 8). Chapter 7 starts by analyzing the P&D organisation, the place where the information system will have to operate, and ends with the evaluation of the SIS design. Chapter 8 will introduce the project team, whereafter the observed problems during the system development are described and evaluated for the given context.
In chapter 9, while looking back to the literature of PART I, both the evaluations are combined for drawing conclusions and formulating recommendations.
7 RESULTS SYSTEM DEVELOPMENT METHODOLOGY PHASES 31 7.1 INFORMATION PLANNING 31 7.1.1 FUNCTIONAL AREASOF THE P&D 31 7.1.2 ÜRGANISATIONAL STRUCTURE AND MANPOWER 32 7.1.3 ÜBSERVED INFORMATION MANAGEMENT SHORTCOMINGS 34 7.1.4 INFORMATION POLICY OF THE P&D 35 7.1.5 INFORMATION DEVELOPMENT PLAN OF THE P&D 36 7.1.6 SELECTION OF MEASURES TO BE EXECUTED 37
7.2 DEFINffiON STUDY 38 7.2.1 SCHEME RELATED ACTIVfiBS 38 7.2.2 SCHEME RELATED ACTIVfiBS WITRIN THE P&D 42 7.2.3 SHORTCOMINGS OF SCHEME RELATED ACTIVfiBS WITRIN THE P&D 43 7.2.4 REQUESTED IMPROVEMENTS 44 7 .2.5 SIS SYSTEM DEFINffiON 45 7.3 PRELIMINARY DESIGN 46 7.3.1 PROCESS MODEL 46 7.3.2 ARCHITECTURE OF DATABASE 51 7.3.3 ENTmES OF TABLES 54 7.3.4 'PROCESSES TIMES DATA' MODELLING 59
7 .3.5 FURTHER DESIGN STEPS 59 7.4 EVALUATION OF SIS DESIGN 60
8 SURVEY OF PROBLEMS 63 8.1 WORKING ENVIRONMENT: DPC 63 8.2 COUNTERPARTAND PROJECT TEAM MEMBERS 63 8.3 LEVEL OF UNOERSTANDING 64 8.4 ABILITY TO IMPROVE KNOWLEDGE 66 8.5 EVALUATION OF OBSERVED PROBLEMS 67
9 CONCLUSIONS AND RECOMMENDATIONS 69
30
7 RESULTS SYSTEM DEVEWPMENT METHODOLOGY PHASES (SDM)
7.1 INFORMATION PLANNING
The objective of the information planning SOM phase is to obtain a development plan, containing priorities of information systems to he upgraded for the coming three years.
The applied results of the preliminary investigation executed by S. van der Meij\ executed in November 1991, are extended by items that are needed specific for this research.
Approach First, a description of the P&O objectives and responsibilities will he presented (7.1.1). Secondly, the organisational structure of the P&O will give grip on the 'means' for fulfilling the responsibilities (7.1.2). Also the quality of this organisation with respect to her responsibilities are discussed.
A list of information problems (7.1.3) will he used to formulate the information policy for the P&D (7.1.4) and the information development plan of the P&D(1.1.5).
Finally, out of the information development plan, a project proposal will he subtracted (7.1.6), to he executed in the next SOM phases.
Technics & tools The used technics for collecting the data, the analysis and presentation of the results for this SOM phase, are many. The essence is anyhow the involvement of the relevant people at the P&O to achieve commitment. Those relevant people were identified as the clients (people who actually workin the situation) and the management (those could he clients as well, but are needed for the formal support).
7.1.1 FUNCfiONAL AREASOF THE P&D In paragraph 4.3, the context of the P&O within the public administration of Pakistan has been described. In this paragraph, the formal implementation within that context will he elaborated by following the objectives down to processes within the organisation.
The objectives of the P&O organisation are presented in table 7.1.
Scope
TABLE 7.1: Objectivesftasks of the P&D (grouped by scope of function)
I. Objectives/tasks
Oevelopment programs A. Foi"IILILation of the provincial developnent programs. B. Prevention of overlapping developnent programs within province.
Development schemes c. Preparatien of developllellt schemes in order to
improve the living standerd in the province; reduce the imbalance between districts within province.
D. Monitoring and evaluation of the developnent schemes.
Source: [Rehman, 1989]
31
THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
In ordertomeet the above objectives, the management of the P&D formulated 5 functional areas as given in table 7.2 below.
A functional area is a group of activities and decisions, which tagether completely support one aspect of running the organisation.
'Aspect of running the organisation' are supposed toserve at least the objectives of the organisation. This is also the case for the P&D.
TABLE 7.2: Functional areasof the P&D
(With the according processes)
#. Fa.x:tional area Process
1. Develop!B'It pol i ei es and proced.lres * Establishing and monitoring planning and development policies and procedures. * Price Stabilization Policy.
2. Development planning * Coordination, appraisal and processing of development programmes and projects. * Preparation of the Annual Development Programme (ADP). * Appropriation and re·appropriation of development grants provided. * Monitoring and evalustion of performance of development projects and programs.
3. EcOflOIIIics * Coordination of provincial statistics collection and processing. * Economie research.
4. Foreign aid and training * Coordination of technical assistsnee from abroad including
· training programmes, - expert advisory services and equipment.
* Coordinating public officers and private sector candidates trainees for foreign countries. 5. Protocol, liaison and pbl ie relations
* Secretarist of the "Provincial Development Working Party". * Secretarist of the "Provincial Screening Committee" for the appointment of foreign experts and
advisors. * Liaison with national planning agencies. * Dealing with matters relating to centrally administered Tribal Areas development. * Protocol functions in conneetion with visits of foreign economie missions and delegations. * lnformation and publicity on results of development.
Soun:e: [Euroconsult, 1990.1)
7 .1.2 ÜRGANISATIONAL STRUCTURE AND MANPOWER
To execute the processes of the functional areasin table 7.2 the organisation has established 21 functional units (sections, cells, units or bureaus).
A functional unit covers human resources and physical means, in order to execute activities within a functional area. The chief of a functional unit is responsible for the assigned tasks.
The relation between functional units can be represented by an organigram. This is done for the P&D in figure 7.1. The P&D organigram2 views the management functions (ellipses) and the functional units (boxes ), as well the hierarchical relation between bath.
By using the organigram the responsible persons/units for the functional areasof the P&D can be identified. Clear identifiable responsibilities of functions are needed, in a later phase, to assign the data responsibilities. This assignment must be made to guarantee the viability of an information system within an organisation. In appendix A the functional areas are crosslinked with the functional units. Out of this study there appeared to be a weak linkage between the functional areas and the functional units, or
32
~ ~
~:3' § ~ ;r~ <:! :-:a ; t":'
§:0 ;;·o'a [ ë. nee:! ït!!l !;l' ::I
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~ ~ 1::1 ~
"' ~ ;: § ~ ~ ~ ... §' !)
::t. § ~
Ch~f (19)
Trai'5P'J("t &. Corrvnunicatron Sectron
T&C
Ch~f (19)
Water & Power Sectlon ...
~~~': ... ~ Sect"" ..
AgleultLTe SectiOn
AG<
:Ce<: lal Development '-""
"""
~-'Y Sectlon
ln<l
Fede"al Administered Trlbe.l Areas SectJon PAD
Seaet~ (20)
General Sectron
SC(CJ)
'\
COOl: """ ......... :J.·I.
~ Management P&D
C) Chief
I D Functional Unit (Section)
Addrtloral Secretory 1 (19)
,,j ~lth & ~[~ Educatton ;:; Se<:tron :::
······.···~·::!!: Plaming, Eval1.11t10n &. FonrulotiOn Sectlon n.r
w~ ~~;; Cocrdlnatlon :;:; Cell ::::
.··.········:'.'·.··:~!~~
-..J
~ 5 ~ ~ g:J
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
in other words, the current organisational structure of the P&D does not reflect her activities very welf. This will force us to reformulate (in a later stage) the activities of some functional areas and assign units/persons responsible for those activities.
TABLE 7.3: Manpower at the P&D
(and Basic Pay Scales) At the present the P&D employs about 200 persons, diffusedover the management, 18 functional units and others, as presented in table 7.3. The manpower structure within functional units are standardized for the Pakistan public administration, and a typical one can is found within this table as well.
BPS Function Total at P&D
Management 19 •• 21 (Additional (Chief)) Secretary 4
Typical structure of functional unit (section) 19 Chief of section ] ... 18 Assistant chief 41 17 Research officer
The Basic Pay Scale (BPS) is an essential tooi for the promotion structure of the employees within the public administration of Pakistan, and varies within the P&D between 1 up to 21. The starting level of one's career is directly related to his educationallevel. Graduated BSc flows in3
at BPS 11, MSc at 13 and Phd at 16.
16 Superintendent 12 15 Stenographer J
Office assistant senior clerk ... 71 Junior clerk Naib qasid (cleaner)
Others Drivers, peons, etc.
Seniority within the organisation and yearly confidential evaluation reports determine the speed of promotion upwards. The pension provisions guaranteed by the government does normally discourage public service employees to switch to the private sector. Employees in the lower function regions stay normally within the same department of a public administration for a life-timé.
65
Also typical for the public administration employment is the non-correlation between study and further career direction: the fields in which the employees will be active does not necessary reflect his/her original field of study (e.g. a biologist can be assigned to develop economie models ). Mostly graduates start with routine functions (e.g. BSc graduates working as a typist).
7.1.3 ÜBSERVED INFORMATION MANAGEMENT SHORTCOMINGS
For the analysis of the existing information systems at the P&D diagrams were created that identified data stores in use by the P&D.
Data stores are collections of data by manual way (reports, books, tables) or computerised ( electronic database structure ).
By analyzing the relation of the data stores within the organisation it was possible to identify bottle-necks of the information management structure. The observed shortcomings or problems are grouped in box 7.1 into technica! and organisational ones. Possible origins or reasons for those problems are discussed in appendix B.
One must notice that this study was limited to the activities of the Data Processing Cell (DPC), the Bureau of Statistics (BOS) and the sectoral functional units, but within this group for all computer-based data stores. The list gives interesting issues to think about and the need for a profound approach of this exercise is obvious.
34
7 RESULTS SDM PHASES
7.1.4 INFORMATION POLICY OF THE P&D The information policy reflects issues which should be respected while developing, introducing and maintaining information systems during the coming years. Those issues are self-evidently specific for the organisation involved and should cover the functional, the organisational, and the technica! aspects to obey on the long run.
The data stores within the P&D organisation5 and the described shortcomings inthefarmer paragraph are used as basis for the formulation of the information policy for the P&D, as is given in box 7.2. The management of the P&D has been directly involved in this formulation
The need for qualified technicians, in order to be able to implement the above policy, must be read in between the lines. The policy will be used as guideline within the next paragraph.
35
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT TIIE P&D, NWFP, PAKISTAN
7.1.5 INFORMATION DEVEWPMENT PLAN OF TIIE P&D Out of the information policy a list of actions and measures has been formulated, to be executed for the improvement of the information management situation at the P&D. This list, the information development plan in box 7.3, exist out of organisational measures, system development actions and technica! measures, all reflecting practical issues.
36
7 RESULTS SDM PHASES
The feasibility of this plan has been based on the experience of one month study within the P&D, and therefore it is to ambitious to present a time-table. The two year period of the SP&D project mustbeseen as the guideline in achieving most of it.
7 .1.6 SELECfiON OF MEASURES TO BE EXECUTED The selection of measures, to be executed in the next SDM phases of this study, have to support eachother and meet the direct needs of the P&D.
In the first instance, the choice was to develop a sectoral databases for the Industry section of the P&D (measure 6.). However, the neerled cooperation with the corresponding Industry department for executing this measure could nat be guaranteed.
The Revision of the Rural Settiement Census database should be done after the development of the sectoral databases (see box 7.3). Thus the assignment for "redesign/development of the Scheme Data Management application" has been chosen (measure 5), as being the only option left over.
The Scheme Data Management application was renamed into the Scheme Information System (SIS) due the nature of activities involved. The corresponding proposal for "setting up a Scheme Information System for the P&D" can be found in appendix C.
In this proposal the first 4 measures of the farmer paragraph are points of actions as well because they constitute the required environment for measure 5. The time-schedule, as presented in the above mentioned proposal, has been used as the guideline while executing the next SDM phases. Next to the actions to be executed, this table indicate also the meetings with the various parties involved ( commitment) and the courses planned (training).
The whole exercise was initiated medio January 1992.
37
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
7.2 DEFINIDON STUDY
Now the 'to be developed' information system has been identified, the current operating information system must be specified in more detail, and what it supposed to be. Formally, this is seen as specifying the system demands and is done during this definition study SDM phase.
Approach First a picture of the scheme related activities, executed by all involved parties, will be given (7.2.1). By identifying the P&D part of those activities the boarders of the information system can be defined accurate, and a more detailed description of the processes inside the P&D can be made (7.2.2). Thereafter, by a feedback action to the functional areasof the P&D, the observed shortcomings of the current activities will be pointed out (7.2.3).
By looking back in the archives of the Strengthening P&D project applicable solutions are found to tacklesome of the shortcomings (7.2.4). With this theSIS system definition can be formulated, for use in the next SDM phases (7.2.5).
Technics & tools In this SDM phase graphical presentation tools are introduced. Apart from own-designed ones the activity diagram is applied, a tooi within the ISAC method:
An activity diagram is a graphical presentation of an organisation (model) and can be used to identify fundamental shortcomings in the information management situation for specified processes. ( see figure 7.4)
It visualize the relation between activities (dots), data stores or messages (parallelograms) and its flow (lines) between activities within the organisation for a 'certain' process of that organisation. Data flows in the grapbics are expected to go down, except when a arrow indicates an upstream. Extra descriptions of the activities and data stores/messages are found in the so-called text sheets.
7 .2.1 SCHEME RELATED ACI1VITIES
The nature of activities covered by the new information system are concentrated around schemes related activities and beloog 'mainly' to functional area 2: Development planning. However, the processes in this functional area, as stated in table 7.2, appeared to be unpractical for further use in this exercise, and therefore the scheme related activities must be reformulated.
Development projects are identified by bilateral missions or national agencies and are sponsored accordingly. The P&D executes in general no projects6
, but acts as the central authority in the administration of projects and the acts as an arbiter during the execution of projects by public administration within the NWFP.
Those activities are unravelled by identifying two main processes, executed within and outside the P&D, as given in box 7.4. Description of both the Project life cycle and the ADP process steps are found in appendix D.
38
7 RESULTS SDM PHASES
Comrnents to box 7.4: a. This report lirnits to the 'provincial ADP projects', that comprehended 1314 projectsin 1991 (see also
table 4.1). The 'special marked' projects that are processed by the P&D too ("Special development, "FATA", etc.) are not included. Projects of Non Governmental Organisations (NGO's) fall out of the P&D scope at all.
b. Both processes are 'looking' similar to the UNIDO Policy and Project cycles, however the name convention and practical execution differ significant. See more in note 7.
c. The 'provincial ADP book' mustbeseen as a important document for the province due it's financlal significant and ( consequently) politica! weight.
Figure 7.2 illustrates graphically the ADP process within the pubtic administration of Pakistan. In this figure the location of process steps are made visible by the according process steps within the circles, the order of process steps by the line and the forwarded messages, -or intermediate data stores- by parallelograms8
•
The time scale on the lower right within this figure representing the process step duration at the different hierarchicallevels and shows, for instance, the short response time in the lower regions of the pubtic administration. The P&D plays obvious an 'intermediate' role during this ADP process. The to be developed SIS is hordered by the P&D organisation, and consequently this research is only interested in the process steps within the P&D. The next paragraph will explore this area in more detail.
No figure is made of the Project tife cycle phases as done for the ADP process because such a 'flow' will probably look tike a 'plate full of spaghetti' if consiclering the numerous involved parties. Scheme status information is used to identify the Project tife cycle phase of a scheme. The different status occurrences for a scheme are elaborated in appendix E, and apptied during the next SDM phases.
39
1'HE DEVEWPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
National Economical
Council (NEC) i
Priorities Committee
.IJ u <I> . ,. 0 1-l 0..
Provincial Assembly
............. r .. ·······
···················~········ .:...... . .... • ....
·-----·-·· .. T·-··
FIGURE 7~: ADP process within the pubtic administration of Pakistan (ADP process = 16 steps; see for description appendix D)
40
Time scale of process steps
12 a ~
I , .• ,4:~.· . . . ~ .
s~ s . • ~ 10 '' : js ::: ~
~ HoY Dec Jan Feb Mu Apr: May Jun
L------[---'~2./ 2>~·-,::... ) > >
7 REsULTS SDM PHASES
While retuming to the two main processes in box 7.4, it is possible to make a simplification of the analysis: there is a share-of-activities between both the project life cycle and the ADP process and this relationship is shown by figure 7.3.
Schem.e related actlvities
FIGURE 7:3: Scheme related activities and the P&D share (Project life cycle = 7 phases, ADP process = 16 steps; see appendix D)
Vertical the Project life cycle phases and ADP process steps are ranked to similar levels. The P&D responsibilities & involvement during a step is indicated by grey boxes bebind a step or phase. A time period scale at the left side of this figure indicates the period of performance. The symbols ('rounded boxes' and project life cycle 'arrows') are consequently applied in this report.
41
THE DEVEWPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
7.2.2 SCHEME RELATED ACfiVITIES WITHIN THE P&D Due the partial role the P&D plays in the above described processes and the weak status of the P&D within the bureaueratic structure9
, a successful operating SIS can only he achieved by limiting the boarders of the SIS to the P&D organisation itself.
With the help of the in's and out's of the ADP process in figure 7.2, and by interviewing some chiefs of sections the activity diagram of 'scheme related activities within the P&D' could he produced. This diagram, as presented in figure 7.4, is a tool for the analysis of the information management situation within an organisation.
Planning Une- Planning NEC Commission Departments Commission
P&D
Une- Une- Planning Provinclal Departments Departments Commission Cablnet
varleus
publisher
UneDepartments
LineDepartments
FIGURE 7.4: Activity diagram of cun-ent scheme related activities within the P&D. Textsheet in appendix F. ( #. = Project life cycle phase; (#) = ADP process step; Activities in the grey part are perfonned whole year round)
The big square mustheseen as the walls of the P&D building. From above the messages and reports, -the parallelograms-, come from the outside world into the P&D society. Those messages or reports flow by lines to dots. This flow is formally identified as a 'data flow'. The dots mustheseen as activities performed somewhere inside the P&D building. Activities by
42
7 RESULTS SDM PHASES
itself produce a data flow or store the results in data stores. The latter type of data medium can be questioned or maintained as well and have an permanent nature. Unfortunately the used symbolism do not discriminate between bath data types, but mostly the description inside those parallelograms will tell enough. The data flow out of the building, -to the outside world-, is found in the lower part of the activity diagram.
The activity diagram of the P&D represent bath the Project life cycle activities as the ADP process activities in the P&D. Project life cycle activities and the according data types are placed within the grey partand are performed the whole year round (identical to the grey time period scale as used in figure 7.3). The other dots represent the ADP process activities and are performed in the given numeric order (from 3 to 16) between November and next year June. In appendix F the activity diagrams text sheet will give some further description of the activities, of the involved parties, and the applied data stores.
The next paragraph will apply this activity diagram for further analysis of the current decision-making processes.
7 .2.3 SHORTCOMINGS OF SCHEME RELATED ACTIVITIES WITHIN THE P&D The identification of scheme related shortcomings are partly done during the farmer SDM phase (see box 7.1). However, the activity diagram in figure 7.4 gives a more specific picture of scheme related activities, and the result of analysing the underlying procedures resulted in the shortcomings as statedinbox 7.5.
ri§Çi~~ ~~'Î!lÎA~!i~s~ §JÎ(}li'l'Çg~IN(}§ \vit~i~ t~e ~~n, ~2 > ···•··•i(f?4s~4 i>#·[email protected] .• il!4ifrài#•••rn·ftgil!~•·7;4) .•.
······;ök7.s.
•·••• .•.r1~&9ri.lil §t §~§t~r~ stati*t~~; ~~it}têr. b)' ffiêf?riSlil••$t:ll~me&~t~••<~.@el"i~iit;~~.· çffórJ11~r••·•••••·•••••••••••••••••••·•·•·•••••••••· $Çlj~Qï~; pijcigÇft1~4$ ()pgo9Jg sÇhettï~~){ > .
. ·.·········b~• ••·· •·•':l'#~·~pp~s#l••?f••~~·piöjÇ~t~••~e·n()t~t.tfVC:+~tÎt••~upp§rt~4&Y.••Pr9l'$r••~~a.#WlitY••sf:iti.p~ .. ••••••·•••••••••••••···•• ······ ç, < WÁ~ §?wpy~~r'"l>AA~ ~()g 1?.\!J\BASE 4()~§ P,()t s!fpJ>Ott t~Ç l'JlJJJ.Pmt pf()c~ ~Wfici~JJ.t· ~~iJljer
···•·•••• ~~•••m~§• 4~t~J?as~•§wt#l?te I()t••§#pptying• itif()rm#ti()l1.J9 t>9Jinèî~ri.§ë••••••••••••••· .. ·•••·•••••••i••••••••••••• >•••••••••r•••••••••••••••••••·••··•.·•••••••••••···········. ·········•
·i: ';IISlili!IE&~1i\~llll!lifl~, .A.J)~ ûA'tÄ1Jl\sli. > << >
· ... <r. ;l'~e QV~#~:P in da_t~ St(jrage of oom t~e RI!;YJEW l>~'rABA~~ ~c:l the Sqt~M~ fiLES viola.t~s
î~r()f)ef 4a~!llll~~~ll1em· ··•·•· . . ) . ·· .. . • < < < ·•····•. < i . . / > ) i ... ·•••··•·•·••••.•·••••••• •••.•.• g. ·········••'J'.lj~ a_'()~~P,<;e•pf·J?l'ój~Çt•• çvaluation.•YiÇiat~s •prop~t••~x.ecutîQI)•9t••fünç~i9iJ..<l:l···~l'Ça ''J?çyel()pll1en.t••••·•••••·• •...
pJ~1)11ing1f, < • < < /•••(~.)••• [email protected].••ç9iJiJ?ut~rft?ase4••c:Iatttstpre~ ••1)9•• prpyjsiPtJ.•·iS• riiM~•~§· di$tiligui$h•tM\talu~•··~#:rpjf•·f9')•·•·••• fr9r# 1*9 #a~~ a~~~!~" ('l'tî.JPl.l), art4 spcp W<?~~tes A~t~ ~~§IDey. < . . . . . . . . . . . . . . . . . . . . . . . . . . ......... .
The 'late-approvals' for marking the un-approved schemes approved must be seen as a far from logica! process, because those un-approved schemes are not supposed to be inserted in the ADP hook at all. However, this type of practice is determined by the 'outside world' and therefore it will be seen as a simple fact of life and pay na further negative attention to it.
43
THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
7 .2.4 REQUESTED IMPROVEMENTS
In the farmer paragraph the shortcomings of the scheme related activities, as executed inside the P&D, have been determined. Now the 'point of focus' need to he defined, to imprave the situation in accordance with the wishes of the P&D and in accordance with the given means.
Those means are rather limited by time, manpower, qualifications and probably many unforeseen influences. On the other hand, the Strengthening P&D project has performed studies ( or is still working) to tackle some of the shortcomings of the former paragraph, and are stated in box 7.6.
· .. ·.·.·.·.·.·.·.·.· ... · ... · .• ·· .. ·.·.·.·.·.·.·.·.·.· .. ·.·.·.·.·.··.· .. -:·-·.· ... ·.·.· .. · .... · .. ·.·.·-:-:-:-·-·.·.···> ..... ·.··- ···.·-:-·-:·>.···.·· .. ...:-.: · .. · .. ·.· .. ·.·.·.:-·.· ..... · ...... ··-:.··. ··.-:-:-·-:······ soJî§MF- ~rimP s'~v s'l'tJ~~~s W.fl1tltjij~ i'.tJ>, t9'4Jîz•~ > · ·· · · (~~m~~!'è.d #~t:l?ttif#g r~66,-ttt»1îiJîi''' oJIJ(').t 7.5) > .·.·.·.·.·. . . ·... . . ·.· ...
.·.·.·.·.·.·.· .. ·.· .. · .. ·.·.·.· ...... · ·.··.·.·.·.· .··.·.·.·.·.· .. .
> 1fu~J7.6
Comments to box 7.6: ad a. The RAS program is the result of a mathematica! approach of the allocation or re-allocation of budgets. The
dimensions identified within this 'sharing procedure' are of geographical (district), sectoral, or of donation souree (sponsor) nature. It is not clear if this program should be restricted in use to the first project life cycle phases (allocations) but it makes anyway intensive use of financlal scheme data. See [Abbink, 1992].
ad d. The new modernised monitoring system has to improve the current weak monitoring system. Apart from the provision of advanced statistica! functions, this new system makes use of four new forrns for gathering data to fill up data gaps. Those forms are used outside the P&D as well. See [Khan, 1992) and [Putten, 1992].
It seems to he effective to focus the system development in accordance with the above mentioned studies. However, it is argued before that the investigation is limited to activities inside of the P&D while the impravement of the monitoring activities crosses the P&D boarders up to the project leveP0
• The responsibility of this data collection falls therefore outside the responsibility of this exercise.
Summarizing, the constraffits for the SIS design are: The SIS must meet the scheme data needs of the above mentioned studies. TheSIS is limited to the P&D environment, with the condition of a proper working 'data collection' by the new monitoring system;
Tbe meaning of tbe first constraint sbould not be underestimated. Tbe current ADP database is a one-year-only information system. For proper planning and monitoring tbe absolute need exist for 'reliable bistorical financial data' respectively 'reliable bistorical target data'. Tbe integrity and availability of tbis data bas to be guaranteed, or, indications of lack of tbis data bas to be 'informed' by tbe SIS to tbe user wbile performing budget planning activities, (sectoral) monitoring activities or wbatsoever.
Those constraints, and other material, are worked out in the next step: the SIS system definition.
44
7 REsULTS SDM PHASES
7 .2.5 SIS SYSTEM DEFINIDON
A system definition describes the new system concept viewed from the * Functional perspective: What functions does the system have to support; * lnformational perspective: What entities types are needed to supply information for
those functions; * Effectivity perspective: How to perform those functions properly in the final system. They can he considered as the starting-points for to he developed system.
The functional demands are formulated as statedinbox 7.7, based in the results of the farmer paragraphs.
The informational demands of the computerised part of the SIS (SCHEME DATABASE) are determined by the entity types needed for the functional demands:
Entity types represent a class of related objects, about data is needed for the organisation to pelfarm certain functions, processes andjor activities11
•
In order to determine the entity types analysis were performed on: the currentADP database (for structure see appendix G); the new monitoring system and the RAS program.
45
THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
The effectivity demands are given in box 7.9.
<ÊirÊê1iV1'1Y à~ffii.ii•••s•s·••••••••••••••·•··· ··· ·.·. . ..... ············- ...
BöX.7:.9··· :::::::::::::::::::::.:::::::::::::::::::::::::::::.::::::::::;::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::.::::.:.:.:.:.::::::::·::::::::::::::::::::::::::::::::::::::::::.;.;._:.:::::-·:.:·::.·::::::::::::::::::::::::::::::::::::: .. :_:::·::.·:_.:.,:::::::::::;:::::::::::.::::::·::·:::.::: .. :::.::::::::.::·.:::::::::;::;:::::;.:::::::.::::::::::::::::":.::.:.:.::.:_._·.:::::._:: .. ;::·:::::
····················· ·••••t?r9Yi§!§#$.~§.iridiC:i1W~•4vàflapflït)J6f@J4.~tî ()r~«f•t9.•9#···#pl~J9•••<I#~efffiin# •• Jlîê reli~pjljcy 9f<.·••·
!:lfllil' :li .. 111fwi~l~~~r~!ll~l~;ïl~IDII~ P*t§X~ (9r8~~9Pil~ ~lj§~tf§lili#ss>il'i §8*/7.1). · · · · · · · · · .... ·.·. · · · .· .. ·.·.·.·.· · .·.·.·.·. · ·. · · · · .·.·.· .. ·.·.·.·.·.·.·.· .·.·.·.·.· .. ·.·. · · .·. · .·.·
The not-improved shortcomings are (with considerations for the future ): a. Provincial, regional or sectoral statistics supply.
Report functions for 'sectoral pedormances' can be pedormed on some SCHEME DATABASE en ti ties (e.g. 'sectoral' physical achievements ).
b. Appraisal. The feasibility studies can make use of 'some' SCHEME DATABASE entities ( depending on "how" those studies are defined).
g. Evaluation. Project evaluations can be based on some of the SCHEME DATABASE entities (e.g. 'financial expenditures' and 'problems' related to 'physical achievements').
This SOM phase is finished by actually defining the logica! 'specifications' of theSIS. Ouring the next SOM phase this result will be elaborated: the functional and informational specifica ti ons of the system are worked out into a process logica! respectively a data logica! 'model'.
46
7 RESULTS SDM PHASES
7.3 PRELIMINARY DESIGN TheSIS system definition of the farmer paragraph is translated in this SDM phase into the logica/ design of the desired system. This design is covered by the process model and the data model of the SIS, and the relation the between both. The logica! design is the input for the implementation modelsof the next (nat yet executed) SDM phase.
Approach A new oversight of scheme related activities for the P&D is given by descrihing the required procedures during the ADP process and project monitoring, their order, and frequency of occurrence (paragraph 7.3.1 ). This farms the process model of the SIS.
The data need for the computerised part of this process model is given by the architecture of the SCHEME DATABASE (paragraph 7.3.2), whereafter 'components' of this structure is elaborated (paragraph 7.3.3). The 'user views' of this structure gives a first glance on the functionality of the data structure for the SIS clients. This all farms the data model of the computerised part of the SIS.
The dynamic relation between the process model and the data model are discussed in paragraph 7.2.3. The translating of those relations into program logic will be the preceding step of program coding (programming), to be executed in the next SDM phases.
Technics & tools The translation of the SIS design into the process and data models comprehends a significant part of this research. The technic for doing is based on a mix of presentation technics, and connecting those 'models' by accompanied text. Both tools and models are discussed when they are applied.
7 .3.1 PROCESS MODEL In the first SDM phase five functional areasof the P&D were identified. Functional area 2, development planning, was reformulated into the Scheme related activities: the ADP process and the Project life cycle phases. Those activities were specified by formulating the functional demands of the SIS. Now this result is being translated into a process model, existing out of procedures and the relation between them.
Procedures are all the 'regulated way of actions' that de cision makers have to obey during the decision making process. 12
An oversight of our process model is represented by the so-called "procedure relationship model", and is given in figure 7.5. The rounded boxes symbolise procedures and are numbered according the Project life cycle phases with an alphabetic sub-numbering. A brief descriptions of the procedure-contents is given in the textsheet left of the figure.
Procedures are executed after been 'triggered' by incoming extemal events ('big arrows'), or after the finishing ofpreceding procedures ('connecting lines', in top to down order). 'More triggers' can execute a single procedure, and the conditions for doing so are found in the explaining box on the lower-right part of figure 7.5.
47
Project life-cyc:le
4.
> 0 z
.D Q)
LL
0.. <(
THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
C ADP Process ) ____ (_1./3_./_4_.) --- C Monitoring ) s. __ 6.~
Departments
Depart'ments -----········-----------------·-------············----------·-········ ~--- ----- .. ----- .
. ~.p::·:y ~~~,·"· + .
3.b : . [ Else tJED·-::::3 . ::::- [ • • ... . c ........... .
lf OK ~ ::::::-:-:-:-··-:· Departments
·::;;:: ·::;. 0·
:ro: :'<.
,'" :~:
·'
External trlgger (message or time)
., ·0·· ·C ·, ·:::J •• -o..:-
Multiple procedtress 'A' are performed for each "B"
~B Multiple proceduress ~ "B" are performed
for one "A"
~~{ k )m :OC~~~~B·~I~Ut m ~ procedtre "A"
-+•-[I)•+ ......
CD·~ QJ--r-
4 CJ Lillil ~ CIJ
Proeedtres "A" may be triggerd by one of the two events
Proeedtres "A" may not be f o Ilowed by "B" (Condition)
Procedtre "A" is foliowed Mutually exclusive
Administrative procedtre
Norms formulating procedure
Norms applylng procedure
Exception procedure
Computer supported (Scheme Database) Important document output of procedure
FIGURE 7.5: Procedure relationship model of proposed Scheme related activities for the P&D: SIS design
48
7 REsULTS SDM PHASES
Execution *. PROJECT LIFE CYCLE PHASE times *. Procedure description with messages and scheme status
1. P&D REQUEST (Project Idea formulation) # 1200 a. Calculating for ongoing projects the Scheme budget need for the coming
ADPyear. 14 b. Formulating Sectoral development objectives for new projects. 23 c. Formulating District development objectives for new projects.
# 1 d. Calculation for new projects the Sectoral/district budget allocations by RAS program.
# ? e. Formulate for revised schemes the Scheme revision request's (marked during
#
#
#
#
#
# # #
#
current ADP year at 6.c). 14 f. Sending Framework sectoral ADP (result of b. + c. + d.) and Scheme revision
500
400 ?
350
1
250
?
1400
1
1400 1 ?
1400
requests (e.) to according line department
2. PROJECT IDENTIFICATION (not by P&D)
3. PROJECT APPRAISAL a. Verifying that new schemes (on the Sectoral project lists), and revised
schemes meet development objectives (of l.b and l.c.) b. Appraising feasibility new and revised schemes. c. Preparing Scheme proposal revisions requests and sending to according
line department d. Entering data of new and revised schemes in computer (those with ongoing
schemes form the lst draft ADP)
4. PROJECT APPROVAL a. Selecting new and revised schemes for ADP ( + ongoing schemes = 2nd
draft ADP). Calculating the Budget allocation for every ADP scheme by RAS program.
b. Preparing Working papers for new and revised schemes and sending those together with 2nd draft ADP to decision-making authorities.
c. Processing Scheme modifications and Budget adjustments from decision-making authorities and recalculating the Budget allocation, if necessary, by RAS program. lnforming line departments of adjustments.
d. Processing Project approvals ( = 3th draft ADP) and sending 3th draft ADP to decision-making authorities.
e. After Final approval NEC printing and publishing of ADP hook
5. PROJECT IMPLEMENTATION (not by P&D)
6. PROJECT MONITORING a. Processing Project progress data and corrections. b. Verifying if project progressmeet pre-defined performance level. c. Preparing Review comments for lacking project. Decide if revision is
needed, and if so, mark project as 'revised' scheme for next year ADP (used at l.e for next year).
d. Printing Project progress reports and sending with Review comments to according line department
7. PROJECT EVALUATION not yet implementable at P&D
TEXTSHEET FOR FIGURE 7.5
49
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
A procedure can be executed multiple times on a single incoming trigger, and if so, this is indicated by 'double arrows' or a 'blown out of incoming lines' on the procedure. The number of procedure executions is found on the left side of the textsheet. The output of procedures can have a conditional character, and if so, this is indicated by black dots on the outgoing line. Those conditions have a 'if-then-else' path.
Both the ADP process and the process monitoring activity are started by external triggers (see top of figure 7.5). Time scales on both sides 'indicates' when a group of procedure are supposed to be executed. Procedures that make use of the SCHEME DATABASE are indicated by a small screen filled with the #-sign on the right side of the procedure symbol. The same indication is found back on the left side of the textsheet. Important documents produced by a procedure are indicated by the parallelogram.
Purthermare the type of procedure are indicated by 'shading' the rounded boxes. Four procedure types are identified:
Ordinary, standard or administrative procedures (white ); Norms formulating procedures, norms with respect to the selection of schemes during 'norms applying' procedures ( dark grey); Norms applying procedures (crossing lines ); Exception procedures, procedures for schemes that did notmeet the norms (light grey).
'Norms formulating procedures' are performed higher in the P&D hierarchy, while 'administrative procedures' can be performed by the lower staff.
The meaning of the procedures are best understood by following the next discussion, where the computerized procedures (related with the Scheme database of theSIS) will be pointed out after the #-sign: 1. P&D REQUEST: At this first ADP process stage the actual idea behind projects are bom.
By translating the priorities, as formulated by the Federal and Provindal governments, into sectoral and districts development objectives, the line departments are enabled to look for fitting projects. At this stage the P&D has to make preliminary budget calculations in order to accompany the development priorities with the 'provisional' financial means. #: The P&D management need to subtract the ongoing schemes budget needs (l.a)
from the available means ( =total ADP budget allocation), and allocate this surplus over the distinguished sectors and district in accordance with the priorities and calculated by the RAS program (l.d). Poor performing ongoing projects, as known from the project monitoring, need to be reformulated and motivations for doing so are printed in a report (l.e) and are send forward to the line departments as well.
2. PROJECT IMPLEMENTATION: Not by the P&D. 3. PROJECT APPRAISAL: As a result on the P&D request, the line departments will return a
'list' of new projects or 'individual PC-1 proformas'. Those will be checked on farmer formulated norms (l.b + l.c) and thereafter the feasibility of passed schemes is determined. Same feedback operations are executed in order to request line departments to be more specific or whatsoever. All this will result in a list of passed projects, named the lST DRAFf ADP
50
#: The P&D sections will havetoenter the 'passed' new and revised schemes in theSIS by storing the general, financial, and target data per project (3.d).
7 RESULTS SDM PHASES
4. PROJECf APPROVAL: From this 'budget-exceeding' list of new and revised schemes, a selection has to he made of most significant projects: a 2TH DRAFT ADP list that meet the budget limits (l.d). Per scheme, a working paper is written to inform the Federal and Provincial authorities about the background of the projects. As a result, the authorities will approve schemes, reject others, but also ask for modifications for a small group of schemes. Practice has learned that the overall ADP budget can change as well, and therefore new RAS calculations will have to he performed frequently. Finally, after approving the 3TH DRAFT ADP, the ADP hook will he published with all approved new, revised and ongoing schemes. More specific details in note 13•
#: Many searches in, and modifications on the stored scheme data are performed (4.a/4.c), as well many reports of projects groups are printed to support the decision making process at various levels (4.a/4.d/4.e). This only on scheme data for the coming ADP year.
5. PROJECf IMPLEMENTATION: Not by the P&D. 6. MONITORING: Monitoring comprehends the verification of the target achievements for
the ongoing ADP year projectsin relation with the financial allocations, or if available the expenditures. Mismatched detected by the P&D will he reported to the line departments for verification or whatsoever. lf projects keep operating below a certain performance, they become marked for revision in the next year ADP. #: The target achievements per scheme are processed (6.a) and ones in a while (per 3
months) a sectoral performance calculation can he made ( 6.b) to identify the lacking projects and eventual mark them for revision ( 6.c ). Reports with actual project data are send to the line departments for verification and comments ( 6.d).
7. Evaluation: Not yet defined by the P&D.
One sees that the SIS is not only focused on data processing, but that it supports the whole 'decision making process' of Scheme Related Activities.
The computerised part of the above procedures (with #-sign) are elaborated in appendix J, however, the meaning of the applied data convendons in that appendix are first described in the next paragraph.
7 3.2 ARCHITECfURE OF DATABASE
Five entity types were identified in box 7.8 tomeet the information need for theSIS system definition. Those entity types determine the SIS database architecture: the computerized SCHEME DATABASE. First follows a justification of the approach.
In the database world several types of database structures are found. The most elegant one is the relational database model, designed by E.F. Codd in 1970. This approach of database rnadelling has the advantage of being mathematically correct and flexible in answering questions, and speciallanguage have been designed to do so (e.g. SQL: Structured Query Language ). The DBASE IV application at the DPC supports the SQL language for examining its databases.
A computerised database exist out of tables14, used to store data of entities:
An entity is a single class (related object) within a entity type, comprehending 'attributes' of the entity (also named 'data elements' or 'fields').
51
'fHE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
Example: "Address" is an entity, and comprehends the data elements Street, Streetnumber, City.
A single row in a table, also named a record, stores the actual values of all data elements for the entity. Any record within a table is identifiable by a unique key, the primary key, existing out of one or more data elements. Keys are used for looking-up a record in a table.
Questions can he posed on records of multiple tables, and this type of questioning makes use of the relationship between the involved tables. This is done by linking one records of one table with one or more records of another table, and this is formalized by linking a data element of one table with the key of another table. Those relations between (records of) tables need to he made explicit in the database model before imptementing the database. lf a user adds or modifies a record in a table, the correctness of relationship with other tables need to he verified. The application program should take care of that job.
The SCHEME DATABASE is designed according the relational database model concept. This comprehended the next actions: 1. ldentification of the needed data elements out of the entity types that support the
procedures in figure 7.5. ( = 'extemal' level of a database: meaning for users)
2. Norma/ization of data elements with as results entities and the relation between entities by keys and conditions; ( = logica! or 'conceptual' level of a database)
3. Aggregation of the entities towards an implemental database structure, with the consideration of various practical conditions, e.g. starage capacity, access time, etc. ( = physical or 'intemal' level of a database: the computerized database structure)
The last action resulted that more entities are stared by a single table, and that in two cases an entity was divided over two tables.
The relational aspects of tables, for bath the logical database and the internal database, are for the SCHEME DATABASE represented by the so-called Bachman diagram in figure 7.6. A short explanation in reading the Bachman diagram will support to understand the relational database story.
Tables are identified by a three-letter code. Lines between tables represent the table relation, according conventionsas stated in the box below figure 7.6. Examples:
One record of the GEN-tabie (representing a single scheme) is related with at least one STA-tabie record (status information for one ADP year of the according scheme). Every GEN-tabie record is, however, related with one and only one Sector, District or Department ( see Code tables ). But nat necessary every record of the STA-tabie is connected toa Foreign Funding agency, however, at most with one.
And so on, one can determine all the other relations between record of tables as well.
At top of the figure is the 'occurrence of records' fora single scheme indicated. Example:
Per ADP year, per project, one record in the Fin-tabie and at most one record in the FEC-table is created.
In practical terms this would mean that the number of records per scheme in the FIN-tabie is the same as the number of project years. The same accounts for records in the FEC-table of foreign exchange consuming projects.
The data elements beZonging to the tables are elaborated in the next paragraph.
52
7 RESULTS SDM PHASES
Codes tables Tables for schemes data
1 for many projects PER PROJECT 1 record more records PER ADP YEAR
1record I more records
ICSoP ~ Stage of
LPr_oc_ess_i_ng_--1
ICSta Status Status tables
I ~ • ~~-----------.============~Yearly scheme
I :-:-·.·.·.·.·.·.·.·.·.·.·.·.·.·::: L.o.:: SoP :::
General tables status ~--oEI Stage of scheme . . . . . . . . . . processing .........
• '-:-•• """'· .-:-. :-: • • -:-. ·"""· """'· ,...,..,-1, .·::. > > > > >:. > ............... .
l ;;.~n~unding L Agency I ~
Ree L---------~ Yearly RecLrring
~ Costs/Revenues
~~~~~ ~~~
r] ~~" ~ Target tables 0 % ~~~~~ ~ Tar ~ PxA ~ (Physical) targets ~-----------oEI Yearly planning &
/. of projeCt / achievements of
~ -~(phys~ica~ ~targe~ts ~
Problems table
a Pro
ICPro Problem type
11 -----------===================~ Yearly encountered 1 0< problems
D Permanent table for scherne data starage
·----, T ernporary table for ADP i i calcu~tions on scherne L----' D Separate table for
scheme text starage
~ Code tables for L______j relerences and special
search functions
1 record of ... . .. can have # record( s)
D---0 1
D-----oD 0,1
~0,1,2,3, .. ,n
Q------::0 1,2,3, .. ,n
FIGURE 7.6: Bachman diagram of ScHEME DATABASE tables ('Shading' for entity type; 'Record occum!nce in table' for single projects on top figure)
53
THE DEVEWPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
7 .3.3 ENTITIES OF TABLES The farmer paragraph described the 'genera!' data structure of the SCHEME DATABASE by giving the tables belonging to the distinguished entity types. In this paragraph the functions for each entity type, in relation with the used tables and entities, are discussed. This can be seen as the 'externallevel' of the database architecture, but only the 'user views' found in this paragraph are useful to explain the SIS clients in the functionality of the design.
A detailed description of the 'internallevel', the physical implementable database structure of tables and her data elements, is given in appendix H. It can be used as an extension on the story below, but is actually an implementation model (for the next SDM phase ).
Two main groups of tables are distinguished: Code tables and Scheme tables. The latter group is split-up into the five 'entity type' tables.
0. Code tables The code tables are created in order to:
reduce starage capacity need by distinguishing codes from data; By using codes in the scheme tables a reduction in starage space will be achieved. The meaning of the codes (=data) are stared in the code tab les. achieve a standardization in used data conventions. The user of the SIS has to select out of the 'predefined' collection of records in the code tables the appropriate data. This 'standardisation of data' will make it possible to perfarm statistica! analyses by computer.
Each table of the code table group belang to one table out of the scheme tables.
1. General The general entity type tables are created to link all the lower level tables and for starage of scheme data with:
a general meaning; Data that is valid for whole project life cycle, e.g. the "responsible department" of a project. and a single occurrence. Data with only one occurrence for the project, e.g. "one and only one" department is responsible for a project.
The TIT: SCHEME TITLE-table, stores only the scheme title in multiple records, in order to achieve flexibility name sizing. The GEN: GENERAL SCHEME DATA-tabie stores all the other data elements.
2. Status The status entity type is mainly created to identify automatically schemes for certain processing steps. A correct understanding of bath the ADP process and the project life cycle is in dispensabie for a proper use of the status entity ( see appendix D and E). The STA: YEARLY SCHEME STATUS-tabie stores in each record the scheme status of a project for the concerning ADP, and some other related data elements as well. This data is mostly changeable during an ADP year, but becomes fixed after the end of that period. Therefore does this table provide the SIS clients with bistorical status data for every scheme. Consequently, every scheme has at the end of the project as many records as years of the project. The SoP: STAGE OF SCHEME PROCESSING-tabie is only created to follow the approval process for new or revised schemes in more detail. By storing the (multiple) approvals on various decision levels within the bureaucracy, disturbing delays can be located.
54
7 RESULTS SDM PHASES
3. Financial The urge for a significant impravement of the financial data management has been pointed out in the analysis of appendix G. The financial entity types are a complex part of theSIS due: 1. the confusing time aspects between the financial entities; 2. the needed data reduction technics, due the size of the tables. In order to handle this situation satisfactory, the next criteria are foliowed while defining the final financial tables: 1. 'Time related financial entities' are kept together in the same table for calculations.
Entities derived from those tables are stored separately. 2. Scarcely used entities are stored apart in separate tables. This resulted in the next four tables: The FIN: YEARLY PROJECI' FINANCE, LocAL COMPONENT-tabie comprehends the financial entities for defining the financial state of a project at a certain moment. See entities below. The FEC: YEARLY PROJECI' FINANCE, FOREIGN EXCHANGE COMPONENT-tabie is an extension on the Fin-tabie and supports the foreign exchange component data storage for foreign exchange consuming projects. On average, only 3% of all the ADP projects have a foreign exchange component (see table 4.2 and ad 2. above). See entities below. The REV: YEARLY RECURRING COSTS/REVENUES-table stores the irregular financial entities: the recurring cost of a project after the normal project period and the revenue of revenue yielding projects during and after the project period. Both entities represent economical data for (statistica!) sector/district performance analysis. An unknown, but probably limited number of projects will make use of this table. The RAS: BUDGET PLANNING CALCULATION SHEET-tabie is created to support the RAS program and other ADP budget planning functions. Before the ADP process, the table get filled with data from the FIN-tabie and FEC-table. After having being used as a calculation sheet, the result is used to update the FIN-tabie and FEC-table with new budget data for that ADP year. Because of this intermediate character, the ADP-table becomes less important for the SIS as data storage instrument.
Both the Fin-tabie and the FEC-table make use of various in time related financial entities. Those relations, relative to the functions of each entity, are presented in the graph of figure 7.7. The meaning and functions of those entities are as follows:
*
*
*
Yearly Original PC-1 budget allocation. This entity is needed to be known for project evaluation purposes ( = Original objectives are related with original allocations ). Yearly Last revised PC-1 budget allocation. lf a project revision took place, the 'Original PC-1' entity should not be overwritten and therefore this new budget data is stored separate for ADP planning purposes. Yearly Actual allocation in ADP. lf budget reallocations are executed within the 15% limit (relative to the Total project budget) no official project revision has to be executed and the Last revised PC-1 entity stays unaltered. However, the "actual" allocation is the allocation as it appears in the ADP hook and therefore need to be stored by this entity for ADP planning and monitoring purposes. Next to the Local and FEC totals, this entity has been specified from two points of views (see also figure 7.8):
Y early Provision structure (From where ... ). This sub-entity indicates the share the various parties contribute to the project, specified for both the Local component and the FEC. Y early Capita! structure (To what... ). This sub-entity indicates the financial part that is allocated to the Communication and Works department, toother capita! consuming project activities and to non-capita! allocations (=Recurrent).
55
VI 0'1
g,"'l \:) -..., en
~·~ ;:' :;-.:! a.~ "' ~ ~s;: .., (11
~ s. ~ ~ {I g, ~ S' ;: i:>)
~ 5. c;)e?. - (11 ~ ::I ~ S· "' ..... ;: ~
~ s· ~~ ~ ~ ...... § '- 0..
~ ~ ~
~ S' § 0. e?. 0.. a i:>)
Ö' .... i:>)
s· ca (11
"51 ..9. a
FUNCTION:
ENTrrY:
I OB~ I
~ ~
Appraisal/Approval (ADP Process)
r:::l ~ EJ
'farmer · ADP year shortage of funds
I MEANS I
EJ
I RESULTS I
~ L:J
certain •amount of lllOIIey", as litored befare July 1992 by Fin/FEC tabl5:
B - Modüicable
R u I -Non-modificable
cfE r-·-·--;, ~-----.0 L _____ y
FEC
- Calnplrlna lliiOUIIIs for "Monitoring"
= MissiDg amounts ~
- Forcign Bll.c:blllsc Component
g
I ~ ?i ~ >
i ~ :;ti
~ ~
~ ~
~ '"d
~~
~~ g ~
*
*
7 RESULTS SOM PHASES
Yearly Actual releases by financial department ( or donor in case of FEC) to project. The amount of money that actual flows to the project can differ from the actual allocation and therefore this entity is needed for project monitoring purposes. Yearly Project expenditure, as given by project. For many reasons, the actual project expenditures can differ from the received amount of money ( =Actual releases). Therefore an oversight of this deficit is needed to be known for project monitoring purposes. Also the actual project investment ( = total Project expenditure) is needed for project evaluation purposes.
DONOR
LOCAL FEDERAL
ACTUAL ALLOCATED NWFP
OWN RESOURCES FEC FOREIGN AID
CAP !TAL
C&W Other (Construct ion, (Equipment)
Land) .................................. ooooooooooooooo•oou .. ••••••••••••• .. '~' ~~~.:.::~.-.:.::~:·.:~:..1 FIGURE 7.8: Specification of Actual allocated entity (with ve11ical Provision and horizontal Capita/ strocture)
4. Targets The function of the this entity type is described in appendix I. Based on that story the next three target entity tables can be identified. The TAR: (PHYSICAL) TARGETS OF PROJECf-table stores the distinguished targets of a project, including the unit of the target, the amount of this target to achieve, and the share of this target related to the complete project effort. The PLA: YEARLY PLANNING AND ACHIEVEMENTS (PHYSICAL) TARGETS-tabie stores per defined target of the TAR-table the planning and achievements during any time period of a project (a time period can be a year or a quarter). Consequently, aftersome years more records of the target achievements are stared in this table, and summarizing for those records the 'achievement' will result in the 'total target achievement'. The TDs: TARGET DESCRIPTION-table belongs directly to the Tar-table, and is created to store flexible the target description name.
A demonstration version of theSIS database program15 has actually implemented the Target entity. Figure 7.9 shows a screen of this program, and displays for one project the targets. For each target the according planning and achievements per year and quarter can be visualized.
57
THE DEVELOPMENr OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
Date: 12-02-92 P&D Scheme-DataBase Program, '92 Demo-version ! Time: 12:08:49 Menu: (Physical) Targets planning & Achievements
SIC: 91P001 Sector: P,EDUCATION & TRAINING District: Peshawar SubSec: PC,SCHOOL BUILDING
rTarget descriptio..-Planned-Uni t-Shr-A/P-*Shr- Year----Pla1ned A Fundament, volume 91 1 300.000
• ii:~w::(i.il~§)~mm::r:::::::::~~;:::i1:=~r ::~m:~::::~:;:rr::::~~m: ~~ ~ ~~~: ~~~ C Windows, Area put in 220.000 m2 14 10 1 91 4 300.000 D Doors placed 28.000 # 7 92 1 300.000 E Roofs, Area 92 2 400.000
completely roofed 92 3 322.000 rooms 25000.000 m2 14 Total--2222.000---1111.~
F Sanitation, Number J of taps/toil ets
•placed 23.000 # 14 . . • •
I Total project achievement ~k
Move bar -tl. Edit -(Enter). Leave -(Esc).
FIGURE 7.9: Example screen of target entity in Scheme database program ('User view') (with cursorpointedat the target 'Walls"; see appendix I)
Currently the cursor is pointedon the target "Walls". The planning and achievements for "Walls" appear within the smaller box right on the screen. One sees "when-what" achievements are made and what the original planning were for that period. The activity "walls" appears to have some delay. Half of the walls are actually placed and that contributed for 14% to the total project achievement, being 29%. lf the arrow-down key would be pressed the planning and achievements of "Windows" would appear on the right of the screen. This can be repeated for all targets.
5. Problems The need for a good project monitoring system is closely connected with a proper insight of the project experiences in the field. However, problems encountered during the execution of projects are difficult to collect for the P&D. Such data is also difficult to handle by an automated information system, due the irregular occurrence of this entity. Nevertheless, a first start has been made by creating the PRO: YEARLY ENCOUNTERED PROJECT PROBLEMS-table, that can store multiple problems per project, per year, and for each of them the remedial measures taken by the project executers. Problems will be accompanied by a problem code from the CPRO-table, in order to standardize (toa certain amount) the type of problems. This can be helpful for statistica! investigations of project performances. Problems will in general be caused by disturbances in the project finance and will have effect on the Target achievements. Therefore the year of occurrence becomes important for the SIS in order to campare the data for all three entity types if desired.
So far the description of the entities used by the tables. The illustrations for the financial and target entity can be considered as the 'user views' of the 'externallevel' presentation.
58
7 REsULTS SDM PHASES
7 .3.4 'PROCESSES TIMES DATA' MODELLING
Now theSIS is approached from both the process and data side, the forma! combination is to be made as a basis for the design of computer procedures. The manual procedures of the SIS are not elaborated any further. It is better that the SIS clients formulate themselves how to imptement those activities. The only constraint is that is done according the process model of figure 7.5.
A convenient way of descrihing the interaction of the computer program on the SCHEME DATABASE is by descrihing for each 'computer supported procedures' what kind of action has to be executed on what entities or data elements. It forms the 'dynamic relation' between the two aspects of information.
This approach is foliowed for all the computer-supported procedures of figure 7.5 (with #sign), and the results are presentedinappendix J. While reading this appendix the 'user views' in figure 7.7 and 7.9 may be useful, as well accounts for the table descriptions in appendix I.
7 .3.5 FURTHER DESIGN STEPS The preliminary design SDM phase of theSIS is ended after theSIS clients have verified and approved that:
the process model (figure 7.5) meets the idea of how the P&D should operate; the functionality of the SCHEME DATABASE data elements meets the P&D wishes. * General entity: See data elements of GEN-tabie (appendix H). * Status entity: See appendix E and data elements of STA/SoP-tabie (appendix H). * Financial entities: See 'user view' of figure 7.8. * Target entities: See appendix I and 'user view' of figure 7.9 * Problem entities: See data elements of PRO-tabie (appendix H)
lf the clients approve the SIS design, the detail design SDM phase can start, with objective ... ... to produce detailed specifications, in which both the functional as the technica! aspects are described, inclusive the organisational consequences.
This comprehends the next list of actions to perform: Design of future organisation structure and worldng environment * Assignment of procedures to functional units (see procedures in figure 7.5) * Assignment of data responsibilities (e.g. code tables go to DPC; other entity types
go to functional units) The maldng of a detailed functional specificadon * Detail design of interface between SIS and RAS application. * Specification of human-machine interface16 (e.g. the Target entity is worked out in
the demonstration program, however without add/modify options) The maldng of a detailed technica! design * Design of procedures and documents of the manual part of the SIS (e.g. forms as
used by the new monitoring system need minor adjustments for the Target and Problem entities)
* Design of screen- and report lay-outs ( only for Target entity screen lay-out is available; current ADP report can be followed)
* Determining program specifications (procedure description in appendix J are worked out into pseudo code)
After approvement of the results of those actions the realisation of the SIS can actually take place by creation of the SCHEME DATABASE and programming of the program specifications.
59
1'HE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
7.4 EVALUATION OF SIS DESIGN
With the research programme elaborated in this report it was firstly aimed to improve scheme related 'decision making processes' within the P&D. This aim was translated into a research objective that says .. .support data processing, .. .support decision making, ... and do that by ... the development of a computer-based infonnation system.
In order to achieve this research objective, the SDM framework was followed, and resulted in answering the next research questions (with references to according paragraphs):
What is the right to exist for the P&D, and what are the means available to do so? (7.1.1 and 7.1.2) What is going wrong in the overall information management, and how can that be improved? (7.1.3 to 7.1.5) What system is selected for improvement? (7.1.6)
This was specified: What are scheme related activities for the P&D, and what aspect should be improved? (7.2.1 to 7.2.4) What functions must the information system support, and what kind of information is neerled for the computerized part? (7.2.5)
And this logic got formalized: What processes comprehends those functions, and how does the according data structure looks? (7.3.1 to 7.3.3) and what are the 'dynamic relations' between both the processes and data within the computerized part of theSIS? (7.3.4) What should be done next? (7.3.5)
Consequently the research objective is not achieved, but a significant part of the abstract work is done, and some implementations are made as starting point.
For the evaluation of the SIS design itself, two quality aspects are discussed17• First the
'design quality', like the forma! correctnessof the data structure and functionality of the design. Secondly the 'manufacturing quality', like the modularity of the design and the implementability for the given circumstances.
Design quality The SCHEME DATABASE structure is 'normalized' (paragraph 7.3.2), however, in two cases redundant data elements were found:
The STA-tabie stores per ADP year of project the Total project budget, while the FINtabie and FEC-table store those numbers specified per year by the Last Revised PC-1 entity. The STA-tabie however stores all the revision totals for bistorical overview reasons, and thus has a different meaning. Many entities of the RAS-tabie are similar as for the FIN-tabie and FEC-table. The RAS-tabie is however not supposed to be 'emptied' afterstart of a new ADP year.
lf the SIS gets implemented, the distinction between those entity functions should be made clear to the SIS clients.
The SCHEME DATABASE structure supports all the functional demands of theSIS, as formulated in box 7.7. Those functions for the ADP process, crosslinked with the procedures in the process model of figure 7.4, are:
60
ADP budget allocations (l.a, l.d, 4.a, 4.c) scheme data processing (3.d) (group wise) scheme approvals monitoring ( 4.a, 4.c, 4.d) sectoralfgeographical ADP reports (including final ADP book) (3.d, 4.a, 4.d, 4.e)
7 REsULTS SDM PHASES
and for the project monitoring: project progress data processing (6.a) (group wise) project progress monitoring (6.b, 6.c) project progress reports ( 6.d)
Even extra functionalities are with the current database and procedure structure possible too: evaluation reports per scheme, based on historica! data. statistica! analysis on the financial expenditures and physical achievements per sectors/ district.
The current ADP DATABASE doesnotmeet the above functions, while the ADP report itself fits the requirement. The most significant difference between the ADP database and the SIS is the time span of storage: the ADP database stores scheme data for one year only, while the SIS stores scheme data for all project life cycle years in the same environment.
Looking at the functionality list above, one can see that an operational version of the SIS design will support the decision rnaicing process of ADP planning and project monitoring within the P&D for the distinguished entities. Bath processes are related because the ADP planning make use of the project monitoring results, while the project monitoring compares the planning data with the project achievements for bath the Financial and Target entities. Thus, apart from ordinary report functions like printing of the ADP hook, the SIS enables the clients to follow individual schemes during the whole project life cycle. Statistica! analysis on groups of schemes will also be within the scope of possibilities, this because of the applied 'code tables'. The type of analysis can self-evidently only be basedon the available entities, but within this area there are virtually no limitations.
Manufacturing quality The scheme database tables are all related with each other, and 'connected' by the GEN-table. Implementing only parts of the database is formally possible, as long tables are connected with eachother, e.g. the PxA-table need the TAR-table for conneetion with the GEN-table. However, the modularity of the tables is limited with respect to the functionality of certain functions, e.g. the ADP reports make use of many different tables and omitting eertaio tables will hamper the output functionality. Extensions of functions are easy realized by adding new data elements to existing tables, or, by adding tables and connecting them to the GEN-table.
Finally the quality of the SIS design with respect to the implementability. To implement the SIS design on an appropriate way within the DBASE environment, the programmes needs many cantrolling functions to guarantee that links between tables are guaranteed. Also the human-machine interfaces are sametimes complex. However, the Scheme-Database demonstration program18 makes a suitable start for further implementations. A basic SIS system with simple add/modify functions on scheme data, and with the ADP report functions, can be made operational within one year. The complete version of the SIS will probably take another year.
The last issue, the quality of the SIS design with respect to the implementability, is related in the conclusions of chapter 9 with the system developers at the P&D.
61
8 SURVEY OF PROBLEMS
This chapter presents a survey of problems, encountered during the development of the SIS, and related with the knowledge of the local system analysts. First a brief introduetion to the Data Processing Cell (DPC) will he made, as being the working environment. Next the composition of the project team is discussed. Thereafter follows an overview of the problems that occurred during the development of the SIS, but also other related issues are presented. Finally the problems are evaluated and conclusions are drawn. The final conclusions are found in the next chapter of this report.
8.1 WORKING ENVIRONMENT: DPC
The development of the SIS has been mainly performed within the context of the Data Processing Cell (DPC). This unit was established in 1985 with the collaboration of FAO\ and the first IBM-PC computers were introduced the next year by USAID2
•
The DPC is currently headed by a deputized-chief with a Post Graduate degree in computerization (M.Sc ), trained at the Department of Computer science of Peshawar University. The lack of professional staff memhers forced him to act as deputy chief which take all his time, and consequently little effort is put in to his professional field.
The DPC has ten staff memhers assigned to do data entry jobs, most of them below the age of thirty. All of them have a Graduate degree (B.Sc or B.A.) but none in the field of computer science. However, half of them had foliowed a one-year course in computer science at private institutes. The work experience varied from none to thirteen years, all in the public sector.
The computer-based databases and the user interfaces at the DPC were designed and programmed by an external Pakistani expert. The maintenance of those systems was performed by the deputized-chief of the DPC. Data entry and report generating is carried out by the staff members.
8.2 COUNTERPART AND PROJECf TEAM MEMBERS
An important objective of international development cooperation is to transfer 'knowledge' in order to achieve 'substantial' results in a developing country. Therefore a strong involvement of the indigenous personnel during the whole design process of the information system was aimed.
However, apart from the chief with a lack of spare time, no personnel was qualified to be selectedas a counterpart3
• On the other hand, involvement of the DPC with their specific knowledge of the organisational matters was indispensable. Therefore, the approach was twofold: 1. The selection of a qualified counterpart outside the DPC; 2. The selection of four persons of the DPC staff.
All tagether it formed the 'Project team' for the development of the SIS.
My counterpart and I would act as the managers of the SIS project while the four DPC staff memhers would be involved in various analysis and implemental activities of the SIS.
63
'THE DEVELOPMENf OF A SCHEME INFORMATION SYSfEM AT THE P&D, NWFP, PAKISTAN
The intention was to setup practical courses for the project team concerning information system development issues like the understanding of applied models, database designs and programming skills. The counterpart would be involved in activities of a more abstract nature.
The selected counterpart was 'borrowed' from the Communication & Works department, had a M.Sc degree in Information Sciences from an university in Karachi and had five years working experience within the Customs bureaucracy in Karachi.
Two of the four selected DPC staff memhers had a suitable level of programming experiences, and all of them were relative young and enthusiastic.
With the P&D management it was agreed that the project team would be assigned for 20 hours a week on this job. Between the P&D managementand the C&W management was agreed that the counterpart would be made available for a similar number of hours, however, only in the afternoon as it was more 'quiet'. The project started around mid January 1992.
The cooperation between me and the counterpart has been hindered by many issues, mostly related with wrong expectations toeach other. The DPC staff memhers within the project team had to suffer from many 'hierarchical problems' like the opposition from the P&D management to allow the project team to work the agreed number of hours for the SIS project.
8.3 LEVEL OF UNOERSTANDING
By descrihing the environment in relation with the technica! artefact 'information technology' the most frequent or visible problems are ranked. They concern issues that indicate a lack of awareness or lack of knowledge.
Use of computer hardware and software The DPC is equipped with an impressive computer-park donated by the USAID and installed between 1986 and 1990:
Some ten IBM PC computers ranging from 8086 up to 80386 processor style machines, (laser)printers, line printer, table scanner, tapestreamer, network connections and finally Un-interruptible Power Supply (UPS) for this all. This hardware was supported by Noveli netware and DBASE IV, Word Perfect and some other supportive or application programs.
The equipment was utilized, however, in a limited way: * The absence of 'configuring' files4 in the computers resulting in performance of
30 to 50%; *
*
*
*
*
64
Extensions of the memory capacity within computers were purchased because of memory problems, but not installed and thus useless. No structuring of computer storage memory (harddisk) resulting in lost documents and exhaustion of storage capacity; The table scanner was purchased to store 'typed documents' on the computer. This makes no sense, as was found out, without the supportive translation programs because of storage limitations and the complex access to graphically stored documents5
•
Problems with software were solved by 'trying out' rather than consulting the available user manuals. The tape streamer was not utilized when 'installation problems' occurred. The Lotus spreadsheet application was not used while it could have been useful for the kind of activities performed.
8 SURVEY OF PROSLEMS
Demonstrations of a more optimal usage of the computerfacilities were 'caught-up' directly by the DPC staff and immediately performed on their equipment. This lasted however only up to the 'next' problem.
Development of systems The motivations for and implementations of computer-based data storage and retrieval systems suffered from unawareness of the applied technology by authorities and technicians: * The so-called Rural settiement survey application, comprehending the data starage for
*
*
*
20.000 (!) settlements in the NWFP, was structured so poorly than no meaningful data could be subtracted any more. This was a consequence of specifications, and surely a consequence of poor data base design; An application for questioning a database was 'attributed' by many fancy colors, however, the functionality of the colars was less than zero while the application itself did not meet its' specifications. lt was however purchased. Existing systems running at the DPC had to be modified frequently in order to meet new data needs of the P&D managementor external authorities. Those 'operations' resulted in unforeseen negative effects on the system; Proposed designs of information systems, as were send to the DPC for approval purposes, were in general only accompanied by hardware specifications;
The ambitions within the DPC were nevertheless more in accordance with their scope of possibilities. Their own applications with a limited range proved to be successful. The pressure to achieve 'modern results' came mostly from the higher hierarchy, within or outside the P&D.
Usage of systems The daily operations the DPC staff were typically: * of a 'cosmetic nature' for data entry and retrieval operations, and directed by the DPC
*
*
clients. determined in order by the 'hierarchicallevel' of the DPC clients. Maintenance operations of systems were consequently frequently interrupted. limited in both qualitative as quantitative respect, due the limited training facilities for DPC staffin the usage of applications, or in the development of new systems.
Summarizing, the awareness of the consequences of information technology is absent at the decision making level, the knowledge of information technology is limited at the operational level, the available hardware and software is adequate for any application that can be made operational within this environment.
In the next paragraph the problems of knowledge transfer in relation with training are discussed.
65
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
8.4 ABILI1Y TO IMPROVE KNOWLEDGE
The consequences of the environment in which the SIS had to be developed were not in the beginning of theSIS project recognized. Ambitions were fed by both the SP&D project and the P&D management, and an optimistic look of involved parties.
The first observation is somewhat related with that optimistic look: "words" seems to have a different meaning than in the English used in industrialized countries. For instanee the vocabulary related with information system development aspects are all well known by the local computer technicians and specialists. However, the assumption that the statement
"I know how to use this computer application" indeed means that
"he worked with this computer application for some time, and has some basic knowledge in using it"
is not always true. lt can also be that he only knows how to start the application and what a single function within this application can do. This kind of 'knowledge' about the program is experimented by him as 'knowing the application'. This honest feeling of knowing the application was found back on application forms, local known as "bio-data", where long lists of computer applications were found under the column "practical experience".
If an applicant was asked to demonstrations his knowledge of such a computer application he demonstrated that he indeed could start the application and perform a few simple operations. The numerous other possibilities of the computer application were unknown to him, and he was actually glad someone showed him the existence of them6
• Thereafter heindeed started to use the new possibilities on a very intensive and creative way.
A somewhat related issue is the "reading of documents". Also here one has read a hook if the introduetion and the first chapter has been digested. However, in contrast with the former example, this is nota 'knowing' problem but rather a 'capacity' problem. The level of reading is in many cases limited and the capability to read comprehending is often insufficient to solve computer problems by consulting manuals7
•
The use of hooks in the locallanguage (Urdu) would improve this situation maybe a little, but applications are still in English, apart from the limitation that no such hooks exist for most popular applications. The effort of Pakistani companies to write Urdu-style wordproccessors has started8
, but there is no real chance that this line will be extended to applications like databases or networks.
The few training courses9 that were performed for the project memhers were too limited in number to be supportive for the development of an information system. Anyway, the oral approach in combination with practical exercises were giving most satisfying results if the discussed issues were placed within the local context. For example, the training in computer programming was a successful exercise as long as it comprehended issues that met their ideas what a program should do: i.e. batch style programs with a limited abstraction level and no use of routines.
The limited success of system analysis was not encouraging. The approach of system analysis is mostly based on modelling, where organisations are represented as activities and data collections. This type of abstract thinking means that one has to leave the idea of 'visible' physical rooms or persons, but has to 'imagine' what people are actually doing.
66
8.5
•
8 SURVEY OF PROSLEMS
A practical problem during system analysis was that project memhers were not allowed to inteiView chiefs due the difference in status. The aspect of data modelling was not elaborated enough during the course to draw any conclusions.
Summarizing the above items will conclude that the professionallevel of the project memhers was not in accordance with any of the three major aspects of information system development, being system analysis, system design and system implementation. The capabilities of gathering knowledge by hooks are limited.
The results are discussed in the next paragraph.
EVALUATION OF OBSERVED PROBLEMS
The first aspect of the research objective, the 'determination' of problems that restrained local system developers in the development of the SIS, can he derived from the farmer paragraphs. Briefly those were: * Lack of support by management.
*
Not sufficient time allocation for performing activities; Insufficient assignment of training facilities; No arrangements to inteiView clients of system.
Insufficient professionallevel of system developers.
The lack of support by the management was in general a matter of unwillingness, possible because the foliowed system development steps were not recognized by the management as being important. The expectations were that "computers solves problems by itself', and if not, the system developers are doing a bad job. This 'lack of awareness', as it is, of the management, can mainly he traeed down by the demonstrative effect of wrong examples. The expected benefits, as demonstrated by magazines or hardware vendors, are in general not applicable for the given organisational context. This effect is strengthened by the 'bonus relation' between some system developers and computer vendors who know how to flatter the 'big is beautiful' feeling of the management10
• The practice of 'dumping hardware' by foreign donors with insufficient training facilities, are also contributing to this problem.
The insufficient professionallevel of the system developers is of another nature.
The start of the SIS project was characterized by a feeling of the system developers to "start immediately programming the application". The urge to be 'productive by programming' is partly found in the stress of the management to do so. However, the local systems developers that recognized the need for 'proper analysis befare building a system' were facing a more fundamental problem, and that is their limited skills .
The development of an information system needs many skills, and a significant part of them is related with 'abstract' matters. A system that has to produce information out of data within an organisational structure is mostly a complex matter, and aften it is neerled to understand how the organisation actually works. If one does not endorse the complexity he is not able to assign justifiable functions to it, and worse, he probably will forget many important aspects that on turn will create problems in the future.
67
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT TIIE P&D, NWFP, PAKISTAN
The way to analyze problems are, however, aften related with technics and tools that make use of models. Those model represent a 'specific aspect of the organisation' or a 'specific items within the information system'. Creating and reading those rnadeis needs a certain level of abstract thinking, and that level was nat met by the system developers.
In a lot of cases the possibilities for system developers to imprave their skill were limited because of the lacking 'comprehending reading' capabilities. A pure 'oral approach' of training exercises is time consuming and difficult. Moreover, as far it concerns information technology, the usage of hooks and manuals are essential to imprave knowledge, while in the case of the oral approach trainees stay dependent of external advisors for new situations or problems.
In next chapter the final conclusions for the whole research are drawn.
68
9 CONCLUSIONS AND RECOMMENDATIONS
Befare the fieldwork was started the problem definition for this research was formulated as: "What are the possibilities of introducing computer-based in formation systems within the pubZie administration of a developing country like Pakistan?" (paragraph 1.1)
This problem definition has been specified into a 'technica!' side and a 'social development' side by the development of a Scheme Information System (SIS), respectively by making an inventory of problems the local system developers faced during the development process. The results have been evaluated and below the overall conclusions are presented and recommendations ( w) are made. References to paragraphs are given within the brackets.
Socio-organisational constraints The recognition by problem solvers of the 'value of information' is supposed to create a demand for information systems, that on turn will have to support the decision making process (3.3). System analysis are essential for understanding the decision making processes, that on turn determines the information need, and farms the basis for the system design (2.3). The motivation of the Planning and Development department (P&D) to develop information systems are, however, based on the 'demonstrative effect of wrong examples' by various parties with commercial interests (8.5). They more or less suggest that computers solve problems by itself, passing the 'determination of information need' activity. The profound system analysis foliowed by the SIS development team was as result nat recognized as being an essential activity, and consequently resulted in a lack of support by the P&D management. " The P&D management has to he made aware that system analysis farms the basis for the system design, while challenging the other views, befare effort is spend in the development of new information systems. If this is achieved, the management willlikely act more supportive towards the training of their system developers and towards the analysis itself.
The Western approach of analyzing problems during system analysis are related with technics and tools that make use of models, representing 'specific aspects of the organisation' or 'specific items within the information system' (2.3). Creating and reading those models needs a eertaio level of abstract thinking, and that level was nat met by the available system developers (8.5). Systems analysis methods that are 'adjusted' for the context of developing countries are in a preliminary stage, and up to now no proven alternatives are available (3.5). w With the consciousness that many technologies and systems are being developed based upon the Western patterns of thinking, following the empirica! evidence which is encountered in this study, it is strongly recommended that much attention has to he given to the subject as for instanee abstract thinking in intercultmal knowledge transfer.
The observed lacking of 'comprehending reading' capabilities of system developers holds up the training efforts by professionals in information technology, and moreover, it creates dependency (8.4 ). " The selection of system developers should primarily he based on reading skills.
SIS design The decision making process concerning the Annual Development Program (ADP) process and project monitoring suffers from poor data management as a result of poor designed and overlapping database systems (i.e. 7.2.3). This malfunctioning can he tackled by combining the functionalities of currently applied scheme related databases into one Scheme Information System (SIS), and by including new functionalities as advised by other studies (7.2.4 and 7.2.5). By this approach the currently applied data collection system does nat need significant modifications. The SIS describes the path to follow by the P&D during the ADP process and project monitoring for bath manual and computerized procedures (7.3.1). TheSIS is supported by
69
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT TIIE P&D, NWFP, PAKISTAN
one computerized SCHEME DATABASE, storing all relevant scheme entities during the whole existence of a project (7.3.3). Consequently theSIS will improve the current ADP planning and project monitoring functions within the P&D significantly: apart from ordinary report functions, like printing of the ADP hook, the SIS enables the clients to follow individual schemes during the whole project life cycle on relevant items, e.g. finance and targets. Statistica! analysis on groups of schemes are possible too (7.4). The SIS design activity is not yet finished. w Before further effort is spend on designing, the functionality of the current SIS design has to be approved by the clients (see for details 7.3.5).
The functionality of an operational SIS is partly determined by the quality of the input. The availability of data (input) gives information about the reliability of the output (7.2.4). w Provisions in the SIS should be made to distinguish 'no data available' from '0' for numeric data elements, in order to be able to calculate the reliability of reports and statistica! analysis.
Implementing of SIS The need for a 'computerized' approach is debatable due to the lack of professional skilis within the P&D. A manual approach, on the other hand, willlimit the functionality for 'calculation intensive functions' like the ADP budget allocation (2.2).
Boarding out the implementation of the SIS has as risk that the further design process will suffer from incompleteness (3.3), and no future maintenance operations can be performed by the Data Processing Cell (DPC) staff. ~ Therefore it is recommended that the DPC staff implements the SIS, but only if:
the understaffing has been eliminated; sufficient time has been allocated by the P&D management; continues professional support is provided (i.e. the SP&D).
The professional support, a system analyst with significant experience in programming too, is primary needed to handle the insufficient abstract thinking ability of the local system developers. This professional is not supposed to implement the system, but to provide training in the fields of system design and system implementation. Two or three DPC staff memhers are to be trained, and should be assigned fulltime to the development of the SIS in order to guarantee their devotion to the job. More tasks would create an overload of work due 'unforeseen' external events, as otherwise is to be expected within the P&D environment (8.3).
The computerized part of the SIS design is moderate complex. Modular implementation is possible, but can hamper the ADP report functionality (7.4). The making of the ADP report belongs to the core activity of the P&D. w lf a modular implementation of the SIS is followed, at least the ADP report function should be supported, and this can be achieved by simplifying the add/modify functions for all tables and omitting the budget reallocation function.
The time needed to implement the SIS depends on the speed of knowledge transfer from the professional support to the DPC staff. A basic SIS system, with simple add/modification functions on scheme data and with the ADP report functions, can be made operational within one year. The complete version of the SIS will probably take another year, however, this is a rough estimation.
The available hardware and software (e.g. computers, database environments) are adequate for any application that can be made operational within the P&D (8.3). w Therefore no new investments should be made in those fields before implementing the SIS.
70
NOTES
CHAPTER2 1 The defmitions in this chapter are based on the literature, however, some freedom has been taken in the exact formulation.
z Page 6 of [Davis a.o., 1984] 3 [Avgerou, 1990] 4 Partsof this paragraphare basedon the preface of [Bemelmans, 1987]. 5 This in contrast with the (widely spread) misunderstanding that assumes automated information systems are easy to modify: This is however often a dangerous and complex operation, due the chain reaction of "to be modified" database structures and program coding. The so-called 41
h generation languages are supposed to fill-up this gap, but up to now we got no further than 31h.
6 Statement made during an interview by Sernelmans in November 1991. 7 Malfunctions in this respect refer to distortions in the control of the process, the understanding of what is needed to be done, and are of a different nature than speed or quantity limitations. 8 [Davis, 1982]
' Page 11 and 147-148 of [Bemelmans, 1987] 10 The model in figure 2.2 of Vandenbulcke has been modified, in order to create one overview. 11 On purpose an 'indication' because in the literature [Blokdijk, 1987] a different approach is used for classifying model types. Their approach however does not fit in the steps-approach as used in our example.
u An "automated" information system can be split up into four logical components (page 152-153 of [Bemelmans, 1987]):
Data base. A collection of data, coming form both the intemal as extemal area of the organisation, that the user need for the decision making process. Programs and procedures. Specific programs or procedures to support the user with the processing of data, and general models for the analysis of data. Human-machine inteiface. Component for enabling the user to communicate with the system. System inteifaces. Specific hard and software for transferring data from one toanother information system.
During the development of an automated information system, the first two components will mainly determine how the decision making process will be supported. The last two components become important in a later phase of the development process. The presented 'example' method-model in figure 2.2 is mainly focused on the 'data base' and 'program base' of the information system. 13 Notes on the information system development model: * The object system, the 'real world' or 'organisation', is the starting point and is represented by the
parallelogram on top. An analysis of the overall activities of the organisation, the object analysis, will result in a draft overview of sub-systems to automate, and is used assign priorities to them with respect to the development order.
*
*
* *
*
The functional decomposition is performed by the division of the subsystem into hierarchical activities and identifying the in's and out's for each activity. On each of them a structure analysis and information analyses is performed and result in a function model respectively in an information model. During the process analysis the functions are analyzed down to the lowest task level, including a stock-taking of the conditions, time and frequency of them in relation with the data processing activities. This results in a process model from where computer program outlines and manual procedures can be subtracted. The data analysis is the defmition of data and data structures and results in a data model. One step lower, the data model is converted into a:
implemen talion model that describes the desired storage and access structures ( depending on the expected use). and a extemal data model that describe sub-aspects of the data model to meet the interest of specific user groups.
Both models are input for the database building what results in a model of the physical database itself and in the related sub-schernes (views) for user groups. The latter two steps find their origin in the architecture of a database (see [Mittra, 1991]):
71
THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
External level (Subschemas) oo::::::::o
I I I ... many-to-one mapping
Conceptual level (Schema/Data model)
Internat level (Data base model)
[~-·~·---~l
~----------------.•--------------~-
1 •.. one-to-one mapping r---------------~--------------~
By distinguishing the externallevel ('view' a user has from the presented data), the conceptuallevel (logica/ arrangement of the database), and the Internallevel (actually implementation of database inside the computer) the system developers will be more flexible while building and maintaining the information system.
14 This "grouping" of methods is somewhat simplified, however usefully for the research of this report. 15 Page 571-577 of [Turner a.o., 1988)
CHAPTER 3 1 Page 22 in [UNIDO, 1985), with reference to: Nmth-South: A programme for swvival, Repo11 of independent commission on international development issues under the chairmanship of Willy Brandt, London, Pan books, 1980. 2 [Avgerou, 1990], with reference to: Is an information theory enough?, F.F. Land, The computer joumal, vol. 28, no. 3, 1985. 3 Page 14 of [UNIDO, 1985), with reference to Jorssen in Computers in development Nations, J.M. Bennet and R.E. Kalman, North-Holland Publishing, Amsterdam, 1981. 4 [Avgerou, 1990] 5 For example the ISAC methodology describes the design and introduetion of an information system simultaneously by changing the work environment like the redesign of job roles and procedures. 6 One of the qualifications to be a successful information analyst is to be an expert in human relation. Page 123 of [Bemelmans, 1987). 7 Developing countries denoted bere the ftrst three groups in the UN terminology (World Bank) classifying the worlds's nations into five groupings, namely:
low-income economies; middle-income economies; high-income oil exporters; industrial market economies; non-market industrial economies.
8 However, between those pubtic administration exist signillcant diversities as a consequence of the diversities between the developing countries itself. 9 [Avgerou, 1990) 10 Page 19 of [Lind, 1991] 11 Page 33 of [UNIDO, 1985] 12 [Avgerou, 1990) 13 [Avgerou, 1990) 14 The social paradigm approach: "Computer-based information systems should be conceptualized as social systems in which technology is only one of the dimensions. This broader perspective offers opportunities for a deeper understanding of their development and use. It is argued that methodologies which aim to provide an understanding of the organisational, social and politica! context are highly suitable for organisations in developing countries." according [Walsham a.o., 1990). 15 The multiview methodology: "The rationality of an information systems development methodology is not always obvious, and causes many types of problems. The proposed metbod and the argument that there is a minimum of three Weltansauungen in allinformation systems, such possible problem areas are presented. The metbod is used only to illuminate issues rather than present solutions. The three Weltansauungen or worldviews are: 1. The empirica} Process of intervention and Change, 2. The rationality of modelling, 3. The cultural metaphor of situation." according [Davis a.o., 1990). 16 [Lind, 1991). The use of 'models' in this context refer to the methods to develop information systems.
72
NOTES
CHAPTER 4 1 The sectionis mainly basedon [Taylor, 1991) 2 This sectionis basedon both [Taylor, 1991] and [DGIS, 1990) 3 [Prins, 1992) 4 [Taylor, 1991) tells that only the second Five-year plan was considered as a success (1960-65), the flfth and sixth in some way (1978-88), while the others worked out disappointing. 5 Practically 100% of the FEC comes from foreign donors. Those aid agencies having a bilateral or multilateral signature. 6 Page 1-3 of [SP&D, 1991.1] 7 A 'scheme' is the administrative image of a physical development project or a project proposal. It can cover more than one project. 8 A PC-1 is the official project proposal, containing the project objectives, ways to obtain them and means needed.
CHAPTERS 1 Page 32 of [Meij, 1991] 2 [Turner a.o., 1988) 3 At the UNDP project in Musafarabad, the same system developer as worked before at the P&D of NWFP was developing an information system for their ADP process. In spite of an operational system, it comprehended different functions than required for the P&D. 4 This ADP process activity is discussed in paragraph 7.2.1 5 ISAC = Information System work and Analysis of Change, developed inSweden by M.Lundeberg, G.Goldkuhl en A.Nilsson. See [Lundeberg a.o., 1989].
CHAPTER 6 1 Page 120 of [Zwaan, 1990]
CHAPTER7 1 See [Meij, 1991) 2 The presented organigram bas been changed rather rapidly recently and will probably be out-dated soon as well. At the time of creating this organigram, four different other versions were "in use", but none could teil the actual version. In the further course of this report it is assumed to have the correct version. 3 The presented flow-in Basic Pay Scale levels are indications, and may vary according circumstances. 4 For example, the positions of the lower staff within the P&D are stabie for many years and do neither have prospects to change according those people. 5 The next data stores bas been identified by van der Meij:
Review database ( computerized) Scheme files Specific sectoral statistics ADP database (computerized) ADP hook Annual development statistica! hook RSC database (computerized)
(ADP = Annual Development Program, RSC = Rural Settiement Census) 6 The P&D can execute projects by itself, for example: the automation of the Data Processing Cell (DPC). In this case the DPC is a part of the P&D and thus we consider it as a special case.
73
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
7 The Policy and Project cycles of the UNIDO are represented by the interacting circles as figured below. The idea is that the crossing of both cycles will guarantee a feed-back of the results. Within the NWFP virtual no feedback mechanism (evaluation) could be identified fortheir project life cycle, and thus neither for the ADP process. We spend no further attention to this approach due its 'theoretica!' nature, however, the need for evaluation is undisputed and impulses for provision will be made.
8 This diagram (figure 7.2) may look like an activity diagram, but certainly not is, because of its 'idealized' process presentation. The practical world has many more feedback mechanisms. Only the main stream of activities are presented in order to give a rough idea about what is happening. 9 The P&D influence within the provinclal declsion making structure is considered weak due the absence of financlal means to be important with respect to other line departments. Moreover, the 'assigned' responsibilities are in general undermined by MNAs, Senators and MP As with constituencles in NWFP (see also the problem listsin paragraph 4.4). 10 This 'crossing of P&D boarders' happens while sending forms towards the projects and collecting those again. 11 Page 82 of [Bemelmans, 1987] 12 Page 160 of [Bemelmans, 1987] 13 The ADP processis formally ended, but still approvals for not-approved schemes can come in, and have to be processed as well (not indicated in the procedure relationship model): "After a new project is been approved the so-called PC-1 proforma can still come in, containing most of the scheme data needed for the SCHEME DATABASE. Also the date of the flrst fmanclal releases by the Financlal department must be entered into the ScHEME DATABASE (The financlal release date represents the start of the project!)". 14 In the DBASE environment a 'table' is represented by a so-called DBF fûe. 15 This is a demonsteation program written under a DBASE language. The technica! manual of this program is supplied within [Heuvelman, 1992]. 16 Human-machine interface: The provision that clients can enter, modify or delete data in the ScHEME DATABASE. 17 The selection of quality aspects are based on page 64 of [Blokdijk a.o., 1987] 18 This demonsteation program is used as prototyping instrument, and has implemented for instanee the target tables into a dynamic 'user view' (see also figure 7.9). See [Heuvelman, 1992).
CHAPTER8 1 Food and Agriculture Organisation (United Nations, main offlce Italy). 2 USAID: United States Agency for International Development, a bilateral development organisation that executed and executes many projects in Pakistan. 3 A counterpart is an expression assigned to those persons that cooperate with the foreign expert on a equal level in order to achleve the intended 'knowledge transfer' on a smooth way. Thus I was the counterpart for my local counterpart, as the local person was my counterpart.
74
NOTEs
4 Configuring files: Files that 'teil' the software what is available on the machine and how to use it optima! for the given circumstances (e.g. CONFIG.SYS and AUTOEXEC.BAT files). 5 Typed documents can be 'scanned' into the memory of a computer and stored. However, such is only sense-making if an Optical Character Recognition program 'translates' the document picture into ASCII computer coding. lf not than the storage space of the computer with 100 Mb. Hard Disk is ftlled within, Iets say, 100 pages. 6 Some people may think that a kind of cheating took place by the applicant in this example. However, the applicants were aware that their screening would be this direct. No efforts were made by them to avoid a 'confrontation' or whatsoever. 7 Taking into account what the 'style' of computer manuals are these days: Most technica! manuals related with computer applications are comprehending many pages and it is my experience that solving a problem means many forwards- and backwarcts searches before a sufficient understanding of the issue is achieved to 'solve' the problem. 8 At the Paksoft '91 in Karachi two companies presented the first Urdu-Nastalique style wordprocessors. Page 19 of [Computer user, 1991]. 9 The arrangement and execution of the courses were hampered by a non-supportive attitude of the P&D management and practicallimitations like the non-availability of quiet rooms. 10 This relationship between system developers and computer vendors is however not found in the SIS group.
75
1'HE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
REFERENCES
[Abbink, 1992] Geo Abbink, Introduetion to improved RAS program, SP&D, Peshawar, 1992.
[Avgerou, 1990] Chrisanthi Avgerou, Computer-based information systems and modernization of public administrations indeveloping countries, in Infonnation technologyin developing countries, S.C. Bhatnagar, N. Bj«<>rn-Andersen (editors), Elsevier, Amsterdam, 1990.
[Bemelmans, 1987] T.MA. Bemelmans, Bestuurlijke infonnatiesystemen en automatisering, Stenferd Kroese, Leiden, 1987.
[Blokdijk, 1987] André Blokdijk, Pa ui Blokdijk, Planning and design of infonnation systems, Academie press, London,1987
[Computer user, 1991] Computer user, Pakistans first computer magazine, Vol.5 no. 2, Computer user publication, Karachi, 1991.
[Davis a.o., 1990] LJ. Davis, Trevor Wood-Harper, Worldview boundaries and information systems development: cross cultural issues, in Infonnation technologyin developing countries, S.C. Bhatnagar, N. Bj«J>rn-Andersen (editors), Elsevier, Amsterdam, 1990.
[Davis, 1982] G.B. Davis, Strategies for information requirements determination, IBM systems joumal, vol. 21, DO. 1, 1982.
[Davis e.o., 1984] G.B. Davis, M.H. Olson, Management infonnation systems. Conceptual foundations, strncture and development, McGraw-Hill, New York, 1984.
[DGIS, 1992] Beleidsplan voor de periode 1992-1995, Pakistan, DGIS, Den Haag, 1992.
[Euroconsult, 1990.1] Strengthening of the Planning and Development department, NWFP, Pakistan, Technica/ proposal, Euroconsult, Arnhem, 1990.
[Euroconsult, 1990.2] Strengthening of the Planning and Development department, NWFP, Pakistan, Pre-inception report, Euroconsult, Arnhem, 1990.
[Heuvelman, 1992] E. Heuvelman, Technica/ documentation of demo version ''P&D database program", SP&D, Peshawar, 1992.
[Khan, 1992] Sarmad Khan, User's guide for completing fonnats, SP&D, Peshawar, 1992.
[Lind, 1991] Per Lind, Computerization indeveloping countries, Routledge, New York, 1991.
[Lundeberg a.o., 1989] Mats Lundeberg, Göran Goldkuhl, Anders Nilsson, De ISAC-methodiek (Systeemontwikkeling volgens ISAC), Samson, Alphen aan den Rijn, 1989.
[Meij, 1991] S. van der Meij, Information technology aspectsof the P&D, Mission report series No. 2, Euroconsult, Arnhem, 1991.
[Mittra, 1984] Sitansu S. Mittra, Principles ofrelational database systems, Prentice-Hall, New Yersey, 1991.
76
[Prins, 1992] J.C.P. Prins, Heading towards a sectoral model of the NWFP, Pakistan, Wageningen, 1992.
[Putten, 1992] Bert van der Putten, Debriefing note ''Monitoring", SP&D, Peshawar, 1992.
[Rehman, 1989] Moeena Rehman, An intemship rep01t on P&D, NWFP, University of Peshawar, Peshawar, 1992.
[Sharma, 1986] B.L. Sharma, Algorithms, in: Informaties and the teaching of rnathematics in developing countires, ICOMIDC/IFIP, Monastir (Tunesie), 1986.
[SP&D, 1991.1] Government of NWFP Strengthening of the Planning and Development department, Inception report, SP&D, Peshawar, 1991.
[SP&D, 1991.2] Government of NWFP Strengthening of the Planning and Development department, Background to the inception report, SP&D, Peshawar, 1991.
[Taylor, 1991] David Taylor, Pakistan, Economy, in The Far East and Australasia 1991, 22th edition, Europa publications limited, London, 1991.
[Turner a.o., 1988] W.S. Turner, R.P. Langenhorst, C.F. Hice, H.B. Eilers, AA. Uijttenbroek, SDM, System development methodology, Pandata, Rijswijk, 1988.
[UNIDO, 1985] Informaties for industrial development, in development and transfer of technology series no. 22, UNIDO, Vienna, 1985.
[Vandenbulcke, 1983] JA. Vandenbulcke, Systeemmethodieken, Informatie, jrg. 25, nr. 2, 1983.
[Walsham e.o., 1990] Geoff Walsham, Veronica Symons, Tim Waema, Information systems as social systems: implications for developing countries, in Information technologyin developing countries, S.C. Bhatnagar, N. Bj«f>rnAndersen (editors), Elsevier, Amsterdam, 1990.
[Zwaan, 1990] A.H. van der Zwaan, Organisatie-onderzoek, leerboek voor de praktijk: het ontwerp van onderzoek in organsaties, Van Gorcum, Assen, 1990.
77
APPENDIX A: RESPONSIBILITIES AND TIIE ORGANISATIONAL STRUCTURE (First reference: Paragraph 7.1.2, "ORGANJSATIONAL STRUCTURE AND MANPOWER")
A cross-link between the functional areas and functional units of the P&D will give us a grip to identify "where" "what" is performed. By combining the responsibilities of the functional units out of page 14 .. 24 of [Rehman 1989] with the processes of the 5 functional areas (table 7.2 in paragraph 7.1), we will get the result as presented in appendix table 1 below. We see that functional areas are frequently shared with more functional units. This situation can create confusion for the P&D when (to be espected) operational problems arise.
APPENDIX TABLE 1: Functional units crosslinked with functional areas (With ''Management" as functional unit)
F~.n:tional Units (grouped according Appendix table 2 ! )
-Schemes- S e r v i c e #. F~.n:tional area Manage- Sect. (Table 7 .2) ment 6x
1. DevelopEnt policies x x and proced.Jres
2. Develçpnent x x plaming
3. Econawics x
4. Foreign aid x and training
5. Protocal 1 liaison x and publ1c relations
Explanation coding: X Main responsible or strongly involved x Jointly involved o Providing service
Spec. Coor A dm i DPC BOS 4x
x
x x 0
x
x
x x 0
PE&F
x
x
SP&D
x
0
x
0
Another way of analysing the quality of the current P &D organisational structure can be achieved by using the care activities in stead of the functional tasks. The care activities are those activities that justify the existence of the organistation, and can be derivied from it's objectives. Por the P&D those are:
Processing development programs; Processing development schemes.
The relation between bath is strong, and in a one-year cylces one can actually see it as a single care activity.
The P&D has denoted 10 functional units towards the "Processing development schemes" core-activity, of which 6 sector-wise, and 4 special ones. We denote the left-over 8 functional units as "service", due the nature of there responsibilities. It is not possible to identify functional units in relation with the "processing of development programs" core-activity. Actually, all the functional units seemes to be related to this care activity in one or another way. The result of this grouping is found in appendix table 2. Por convience we will see the indentilled groups as divisions of the P &D organisation.
If we shade the functional units within the organigram of the P&D (figure 7.1 in paragraph 7.2) according the above divisions (derived from the core-activities), we will get the shaded organigram of appendix tigure 1.
One sees directly that each divisions has more than one person of the management to deal with. Also this alternative representation shows us that the responsibilities are assigned in an odd way. The question arise if this structure need to be optimized in the future.
A-1
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
APPENDIX TABLE 2: Grouped functional units of the P&D (by separating core-activity from service)
G~ing (or Division) Abbr. - Section
* Sub-section
Processing schemes Sect Sectoral T&e - Trans~rt & communication section W&P Water & power section Agr - Agriculture section Ind - Industry section H&E - Health & education section wee - Women development cell
~re sou SOP FATA
Service Serv
Special - Foreign scholarship section - Special development unit
Special development prosram section · Federal administered tr1bal areas section
eoor - eoordination section Admi - Administration
SO(G) * General section SO(E) *Establishment section
DPe - Data processin9 c~ll BOS Bureau of stat1st1cs PE&F - Planning, evalustion & tormulation section SP&D Strengthening P&D project
e&ER * eoordination & economical research cell M&E *Monitoring & evalustion cell T&SD *Training & staff development cell
n LJ
~ D
APPENDIX FIGURE 1: Organigram P&D, shaded by core-activity
A-2
Processing schames -Sector al
-Special
Services
APPENDICES
APPENDIX B: POSSIBLE ORIGINS AND/OR REASONS OF OBSERVED SHORTCOMINGS DURING THE
INFORMATION PlANNING PHASE
(First reference: Paragraph 7.1.3, "OBSERVED INFORMATION MANAGEMENT SHORTCOMING'~
Note: The alphabetical numbering below corresponds with shortcomings in box 7.1 of paragraph 7.1.3.
Technical shortcomings General a. Various computer-based data stores (i.e. ADP database, Review database) aften contain exactly the
samedata (redundancy). Apart from exaggerated starage capacity needs, the maintenance of data becomes difficult and results in "more versions" of data and consequently results in an unreliable data supply ("what version is updated, what nat?"). Also, within a computer-based data store (i.e. the above mentioned and the RSC database), the structuring of fields is done according the data inputs, resulting in: * redundancy (same consequences as above); * limited flexibility in starage of "special cases"; * difficult to retrieve data in certain order of way. As a consequence, the present program part
for retrieving data is very complicated and therefor hard to maintain; b. The computer programs for input, maintenance and retrieval of data out of the computer-based data
stores is done unstructured, resulting in difficulties to maintain the programs. Neither do program manuals gives any clues about their program structure and therefore the maintenance operations are risky and time consuming. The results of those modifications are self-evidently mostly nat very satisfying.
c. The various computer-based data stores are distributed over several computers, due to the large amount of starage capacity required (as aresult of b.). Consequently, the queries are becoming complicated and unreliable.
Specific d. The ADP data base is designed to create the ADP book for one year only (after printing the ADP
book, an exact copy goes totheReview database). No provisions were made to keep the data available for use in the next year as well. Therefore, for each year a completely new database is created, and the old ones stared on separate floppies. Even more dramatic, the scheme numbers used in every ADP data base and ADP book do nat have any relation with the latter year (every year a new serlal number is assign to a scheme, depending on the order of appearance in the ADP book of that year). By this way it becomes impossible to follow the scheme progresses. Analysis (statistical/monitoring of schemes) are consequently "more or less" impossible to execute.
e. The available network (Novell) installed at the DPC is nat operational. However, an operational network will under the given circumstances probably neither be utilized properly.
Organisational shortcomings f. It is feit that for some fields/sectors detailed and reliable data are lacking to support the planning
process of the P &D. g. Sectoral statistics are maintained in different data stores by two sections (Sectoral sections and the
BOS). Consequences, redundancy of data (collection) and indistinct responsibilities of the data collection are the result.
h. The DPC bas been assigned many tasks, which she impossibly can perfarm all together: Next to all the data processing tasks, the availability of computers is seen as an excuse for the other sections to assign numerous wordprocessing tasks as well to the DPC. Also, on ad-hoc basis, external politicians walk in to get there work done by the DPC.
1. The DPC centre maintains the computer-based data stores, but apparently no other section bas direct access to these for data retrieval. Consequently, the responsibility of the data is laid down by the DPC as well, but they are nat (supposed to be) the "owner". Problems arise when sarnething with the data goes wrong (get lost or whatsoever).
j. The low-level of knowledge and lack of training facilities for the DPC staff makes a growth in experience with the computer facilities difficult.
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'fHE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
APPENDIX C: PROJECT PROPOSAL
(First reference: Paragraph 7.1.7, "SELECTION OF MEASURES TO BE EXECUTED'')
Proposal for "Setting up a Scheme-Information-System for the P&D" By: E. Heuvelman
Peshawar, 12 January 1992
0 DEFINmONS
Data: Objectively perceptible facts.
Information: The meaning that a person gives to data according a possible convention.
DataBase: A colZeetion of data (possible computerized stored).
Information-System: The manual and automated procedures to collect, manipulate and interpret data for certain tasks within an organisation.
1 INTRODUCTION Within the framework of the "Strengthening of the Planning & Development Department" project, the impravement of the existing information system at the P&D is seen as one of the elementstoreach her targets. With respect to this subject a senior system analyst from Euroconsult identified in November 1991 the redesign/development of the Scheme Data Management application as one of the follow-ups of his mission to imprave the capability of the P&D toperfarm her task. This proposal deals with that follow-up. This proposal refers to major aspects of the report of the above mentioned senior system analyst. This report, ''Analysis of some Information Technology aspects at the Planning & Development Department'~ should be read for a proper understanding of this propos al.
2 ÜBJECTIVES OF THIS EXERCISE
The main objectives for the development of a Scheme-Information-System for the P&D, are: to obtain an information system which tackles the problems of the current-existing ADP DataBase; to obtain a completely new information system which meet most of the daily information needs of the sections concerning the progressof their projects (i.e. the approval-process of new projects; monitoring of ongoing projects; project completion reports); to obtain a tooi for re-allocating development funds by the management of the P&D; to build up a hlstorical database of finished projects for planning purpose.
Two important constrains can be identified given those objectives: the need for a stabie scheme-identification-code (SIC) during the whole schemelproject life-cycle; the need for a profound study of the information needs of the sections and other parties within the P&D concerning the scheme-related aspects.
3 COOPERATION It is an illusion to assume that an proper information system can be developed by only one outside person. The need for profound knowledge of the information situation at the P &D can only be supplied by persons who have been in the organization for some time. Even more important is the commitment of the clients of the Scheme-Information-System and the commitment from the management of the P&D. For that reason it is proposed to farm a project-organisation on three levels, which will be useful also for future developments (see appendix tigure 1):
A-4
APPENDICES
1. An Information-Policy-Group (lPG), consisting of the (top)management of the P&D; 2. An lnformation-Management-Taskforce (IMT), consisting of chiefs of the sections and other clients
of the concemed data (i.e. BOS); 3. A Project-Team, consisting of persons out of the DPC and eventually with a representation of the
"clients of the information".
• Project-Team
A1
lnformation Management
Taskforce _/· A
/ ~~}~~}: ·.,
'·,,,',,,::--·'
A2
lnformation Policy Group
·-., __ A3
.·· ...
L---------------"--·········-------------------- -------~·--------------------------------------:.
APPENDIX FIGURE 1: Information-Organisation setup. Note: Dots represent Chainnan or groupieader of triangle, who is member of triangle-group above
3.1 INFORMATION-POLICY-GROUP
B _______________________ :!.
The Information-Policy-Group gives guidelines for the development of all information-systems to be developed and checks the observance of it. The Secretary, the Chief Economist and the Chief of the DPC have for example to joint this group. With respect to this proposal: The directive to release memhers of the Project-Team part-time from other woricing obligations should be given by this Information-Policy-Group.
3.2 INFORMATION·MANAGEMENT· TASKFORCE
This taskforce gives concrete form to the guidelines of the Information-Policy-Group. With respect to this proposal: The need for cooperation from people within the sections and the related line-department is essential for the following reasons:
to determine the proper information needs concerning all aspects of the life-cycle of a schemejproject; to assure that they get involved in the whole exercise, so the acceptance of the information system will be increased (and the supply of data for the Scheme-Information-System will be guaranteed).
The time needed for cooperation from the individuals of this taskforce will be limited to a couple of hours a month, during a period of 3 months. Without the commitment and cooperation of the sections this exercise is not going to yield satisfactory results!
3.3 PROJECT-TEAM This Project-Team actually performs the research for- and implementation of the Scheme-InformationSystem. It can be compared with the "Automation Team" which was formed during the development of the ADP-database in 1986. The existence of a locally formed Project-Team is also essential for keeping the experience of this exercise within the P &D with respect to:
maintenance of the Scheme-Information-System to be developed; further developments of extensions of the Scheme-Information-System; further developments of other information systems.
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THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
My role in the Project-Team will be: (the arrangement of) training of the memhers of the Project-Team in specific areas, like: * Structured developments techniques concerning the development of information systems (ISAC,
* * * * * *
SDM or like); Logica! data-modelling, following relational principles; Database development aspects in multi-user environment; User-interface aspects; Fundamental programming aspects; Relevant MS-Dos aspects; DBASE lil programming (eventually extendedtoother related languages like DBASE IV, FoxBase or Clipper).
taking care that the execution of the individual phases of the exercise are properly done; supplying proper tools and techniques for the exercise; taking care that the intermediate reports of the different phases of this exercise get ready on time.
The memhers of this team will not necessary have to be recruited within the computer section of the P&D, but will however to be located later there to perform future information-System development tasks. Some experience with MS-DOS computers of the individual memhers of this information-team is an advantage. One must realize that they will be involved during the whole process of this exercise, and have to be released from other working obligations for at least 20 hours a week (for some individuals preferabie more time). The Information-Policy-Group has to arrange that such is guaranteed.
4 ÜRGANISATIONAL MEASURES
Introducing an proper automated infonnation system anywhere in the world is more than simply designing a computer program and turn it on. Probably the most important part of such an exercise is the organisational changes (with respect to manual procedures like data-collection) that have to be made within the conceming department as wel/. The reason for this is the changed way of working with the fonnal computer. The cu"ent ADP database is in this respect not an infonnation system. Like written in the mission report of the senior system analyst from Euroconsult, this exercise will only succeed if other organisational measures are taken as well. With respect to those measures the next comments need urgent attention:
Currently, the DPC is performing tasks which she hardly can combine with her formal dataprocessing tasks. Two major reason can be identified for this: 1. the understatling of the DPC at the management level; 2. the position of the DPC within the organisational structure of the P&D. Because it low hierarchical status, the DPC has to follow orders from most other sections (and even from outside the P&D), like ad-hoc wordprocessing- and reporting tasks. This situation got even worse due the low hierarchical status of the current DPC chief, who hardly can refuse orders from anyone. The computerized part of the Scheme-Information-System will have to run in a network contiguration to make its use practical. The need for a full-time Network Supervisor is essential! During the development of the Scheme-Information-System the network bas to be made operational by this Network Supervisor and/or an external company. This task can not be performed by one of the information-team memhers during our exercise.
At the moment, about 80% of the activities of the DPC is wordprocessing. This task should be separated from the DPC cell into another Word-Processing-Cell (WPC) to guarantee that the DPC can perform her Data-Processing tasks. lt would be wise to allocate the "slow" computers for wordprocessing tasks, and the others for data-processing purposes.
An improved is as follows: The DPC should be direct responsible to the Secretary. The new WordProcessing-een (WPC) can best be placed under the responsibility of the Administration. New and clear responsibilities of both cells have to be defined by the Information-Policy-Group.
A-6
APPENDICES
5 METHODS
The design and implementation of an (automated) information system will be done conform structural methods to handle the amount and complexity of the concerned data. Appropriate methods during part are ISAC (Information Systems work and Analysis of Changes) or SDM (System Development Methodology). The benefits of using such methods are many, i.e.:
a way of communication between the concerned parties; the various ways of presenting an information system; the use of complexity reducing technics; transferability of design results (for later maintenance); the identification of clear defined phases in the progress of the development of an information system;
6 TIME·SCHEDULE AND GLOBAL AcriVITIES
Assuming that the commitment of the P &D staff is given for this plan, the next activities will be executed, specified by actions of the Project-team, meetings with the concerned parties and courses for the ProjectTeam. This table is not the final version, but gives a good idea of what will be done.
Phase 0: Preliminary Investigations
1 - Selecting candidates for the Project-Team.
- Collecting information for the courses for the Project-Team.
- Preparing courses 1 and 2. - Preparing the sheets and
demonstration-program for the first IMT meeting.
- Defining the phases of this exercise in more detail.
0.1 Situation Analysis (Determining of available: • hardware at the DPC; • software packages at the DPC; • DataBase application
programs running at DPC, specified by their:
- structural set-up; - who owns the data and who
use it.)
First meeting with the InformationPolicy-Group (lPG): - Presenting this proposal, discussing
and approving it; - Discussing the responsibilities of
the future DPC and the new to create WPC;
- Formulating general information strategies, in which this proposal will fit;
- Defining the members of the Information-Management-Taskforce (IMT), select a date for their first meeting and defining the agenda for that meeting;
- Discussing the policy regarding to the training of people within the Project-Team (ie. extemal training);
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THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
Phase 1: Definition Study
2
3
A-8
- Preparing Courses 3 and 4.
- Preparing courses 5 to 6. 1.1 Determining system boundaries
and objectives • Coneetion of infonnation about
the desired infonnation supply - Mapping of current system by
DFD and A-Diagrams; - aear fonnulation of problems
with current system; - Inventarisation of wishes and
suggestions for improving infonnation supply.
• Detennining of objectives for the to develop system
1.2 Determining functional requirements, and drafting system-c:oncept(s)
1.3 Selecting system solution lA Preparation for the decision
making process with respect to the following phases - System demands, System
concept, Alternative solutions, Selected solution;
- System development plan; - Costs-Benefit summary; - Reporting:
DEFINmON·SfUDY·REPORT
First meeting with the IMT: - Presenting the general infonnation
strategies of the P&D, and how this exercise fits in it;
- Discussing the set-up of this exercise and get commitment from all the members of this meeting;
- Presenting the candidates for the Project-Teamand get approved that they will be released fonn other working obligations for a certain time; _______________ , _____ _
Introduetion meeting with the new memhers of the Project-Team: - Explaining the set-up of this
exercise; - Selecting dates and places for the
courses.
Second meeting with the IMT: - Presenting the result of the
Definition-study by the Definitionstudy-report and disrossing it;
- Getting approvement of the proposed system solution (improved infonnation system setup).
Course 1: - Introduetion during the context of
the following courses will be explained;
- Structured development technics concerning the development of infonnation systems.
----·------------------Course 2: - How to make Data-Fiow-Diagrams
(DFD) and its use; - How to make Activity-Diagrams
(A-Diagrams) and its use; - Exercise: Use both technics on the
current situation within the P&D regarding to the life-cycle of schemes.
Course 3: - Principles of databases; - Logical data-modelling, following
relational principles; - Exercise: Nonnalizing the current
ADP database.
Course 4: - Introduetion in structural
programming; - Exercise: Designing of a menu
program with the use of procedures.
Phase 2: Preliminary Design 4-6 - Preparing courses 7 and 8.
2.1 Defmition of the organisational environment
2.2 Defmition of the infonnation architecture - Definition of logica! data
structure; - Definition of global functional
specifications. 2.3 Detennining of the technital
systems-structure - Needed hard- and software; - Specification of the to develop
technica! sub-systems and interfaces between those subsystems.
2.4 Preparation for the decisionmaking process with respect to the foUowing phases - Judgement of the design with
respect to completeness, consistence, reliability;
- The making of a detailed project-plan, as well a detailed costsfbenefit analysis;
- Reporting: BASIS-DESIGN-REPORT.
Phase 3: Detail
7-9 3.1 Design of the future organisation structure and the working environment
3.2 The making of a detailed lunctional specification - Specifications of sub-functions; - Detailed design for storage-
structure for subsystems; - Specification of human-machine
interface. 3.3 The making of a detailed
technical design - Detailed description of technica!
framework; - Design of procedures and
documents of the manual part of the information system;
- Design of screen- and report lay-outs;
- The making of a technica! database-design;
- Determining programspecifications.
4.4 Preparation lor the decisionmaking process with respect to the following phases - Judgement of the detailed
design; - Setting up of a functional test
plan. - Reporting:
DETAILED-DESIGN-REPORT.
APPENDICES
Third meeting with the IMT: - Presenting the result of the
Preliminary Design-study by the Basis-design-report and discussing it;
- Getting approvement for this Basisdesign.
Fourth meeting with the IMT: - Presenting the result of the
Detailed Design-study by the Detailed-design-report and discussing it;
- Possible adjusting of minor issues.
Course 5: - Essential principles of operating
systems; - Exercise: Setting up the available
computers.
Course 6: - Introduetion in DBASE Janguage
aspects, conceming database set-up and querying;
- Exercise: Designing a relational database and the implementation inDBASE.
Course 7: - Database development aspects in
Multi-User environment (i.e. deadlocks, access-management, etc.)
- More DBASE;
Course 8: - User-interface aspects; - Exercise: Implementation of menu-
program of exercise in course 4.
Possible extra Courses in specific fields.
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THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
Phase 4: Realisation 10- - Making of routines; 12 - Making of program specifications;
- Creation of database; - Creation of testing-environment; - Making of programs; - System tests; - Making of training plan; - Reporting:
REALISATION REPORT.
Phase 5: Introduetion 13 - Making of introduction-plan; Fifth meeting with the IMT:
- Making of task descriptions; - Presenting the Scheme-lnformatio-- Enlightenment about the System and discussing it;
information system for the users; ---------------------------------- Conversion of data of former years Suond meeting with the lPG:
into the new system; - Presenting the results of this - Reporting: exercise, and the formulation of
CLOSED PROJECf-DOCUMENTATION. improvements for follow-ups.
1 Phase 6: Operations and Maintenance 1
~---,----------------------------,----------------------------,----------------------------~ 14-.. - Maintenance of databases & Thirth meeting with the lPG: network; - Pormulation of a modified
- Reporting about the use; information policy. - Backupping of databases; - Adding andfor modifying of
application programs; - performing additional training
L----L-P~~~~~~-------------------L----------------------------L---------------------------
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APPENDICES
APPENDIX D: DESCRIPTION OF TIIE "PROJECT LIFE CYCLE" AND TIIE "ADP PROCESS" (First reference: Paragraph 7.2.1, ''SCHEME RELATED ACTIVJTIES")
#. PROJECT LIFE CYCLE phases
(#) ADP PROCESS steps with: (see also figure 7.2 in paragraph 7.2.1) (Involved Parties; Actions/ Activities; Data Stores/Messages)
(1) The Federal Govemment through the Priorities Committee, of which the Planning Commission is a member, sets Tentative Annual Provindal Priorities and Budget Allocations, based primarily on the Framework of the current Five Year Plan. These priority committees are also represented by provinces through their Planning and Development Departments (P&D's) apart from the Planning Division.
(2) The Planning Commission then consolidates those allocations for each province and send them to the P&D's with copies to Federal Finance Division.
1. P&D REQUEST (3) The P&D (through the Coordination Section) prepares Sectoral/District allocations basedon a
resource distribution formula1•
(4) The P&D send the Line Departments a request toprepare project proposals2 basedon the allocations, conveyed tothese by P&D by December.
2. PROJECT IDENTIFICATION (AND FORMULATION) (5) The Line Departments prepare an Intemal Policy Framework whereby the allocations are
basically split between on-going and new projects4•
(6) The allocations are communicated to Attached Departments for review. The Field Offices assess the requirements for completing on-going projects and the priorities for new projects.
3. PROJECT APPRAISAL (7) U pon receiving comments from the field, the Attached Departments prepares a project list
(draft Sectoral ADP) which is reviewed and refmed with the Line Departments. Durlog this period draft PC-l's and PC-2's arealso needed to he prepared5
•
(8) The project lists from all the Line Departments are submitted to the respective sections (sectoral groups) in the P&D. Put together, this is called the 1"' draft ADpó.
(9) The Sections review the proposals according to eertaio criteria7 and may suggest revision8
from the Line/Attached Departments.
4. PROJECT APPROVAL 4.1 P&D
(10) The P&D convenes meetings consisting of: - Additional Chief Secretary, - Secretary, - Additional Secretary, - Chief of Section concerned, - representative of the Finance Department, and carries out a detailed investigations9 of the proposals in the "moditied" 1 st draft ADP presented by the Line Departments and Sections.
(11) The P&D consolidates the sectoral ADP's into a 2nd draft ADP10 and sends it to the Planning Commission of the Pederal Government.
4.2 FEDERAL GOVERNMENT (12) The Planning Commission convenes a meeting of the Annual Plan Coordination Committee
(APCC) represented by all the four provinces. The APCC reviews and discusses the four provincial2nd draft ADP's, confirming that it roeets with the federal and provindal objectives and making minor adjustments11 where necessary. After finalizing the budget allocations, the APCC sends the "moditied" 2nc1 draft AD P's back to the P&D's.
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THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
(13) The P&D finalizes the comments (possibly with the Line departments) into a 31h draft ADP and prepares a Working Paper for submission to the Provincial Cabinet.
4.3 PROVINCIAL CABINETAND ASSEMBLY (14) The P&D presents the 31h draft ADP and the Working Paper to the Provincial Cabinet for
approvement. Normally this is a routine operation as all the details have been worked out in advance, although the cabinet still has the opportunity to make significant changes if it so wishes12
• A Formal Approval by the Provincial Assembly is given. 4.4 FEDERAL NEC
(15) Just before announcement of the National Budgetl3 a Final Approval for all provindal ADP's is given by the National Economical Council (NEC) and the printing of the Final ADP can he executed by the P&D.
(16) The ADP book is released and becomes operational as of July 1•1•
4.5 ADMINISTRATIVE ( .. ) Administrative Approval is an existing but not wanted approval of single projects, which can he
executed by a technica} sanction, the "technical feasibility assessment" of the project.
5. PROJECT IMPLEMENTATION The executing agency has two possibilities: 1. On-going projects: Immediate implementation 2. New projects: Start date depending on financial releases by Provincial Financial Line
Department. 6. PROJECT MONITORING
Weak. Officially done quarterly for every project by the PC-3 form. This form is ftlled up by the Project, scrutinized by the Attached Department, and send by the Line Department to the sections ofthe P&D.
7. PROJECT EVALUATION Not existing. The end of the project is supposed to he reported by the PC-4 form (project completion report). The evaluation of the projectsis supposed to he reported by the PC-5 form (project evaluation report). Bothare supposed to he ftlled up by the (Attached) Line departments and send to the sections at the P&D.
160% allocated on the basis of population and 40% by districts, with some allowance for backward areas 2Project proposals are put together in the so called Project list. 3Practically proposals are not received till Pebruary. 4Bearing in mind there is normally a 10% or so annual iocrement over the previous year's budget. "Ongoing" consumes about 60-70% of present budget ADP.
13ut this seemingly does not actually happen.
~t exist actually out of a bunch of individual papers. 7i.e. standards, the 60:40 formula, technica!- and economical aspects, etc.
Bsy means of telephone or letters modifications are suggestedfreceived. 9In practise: if project falls within overall framework given by the Pederal Govemment, it will be approved. 1Tiis actually is the first standardized list of ADP projects. 11Discussions in Islamabad. Three possibilities:
a. Approved; b. Approved with amendments; c. Rejected. lf b. or c. (there are major problems with the proposals), the APCC sets out conditions which must be met before approval is granted. Then, the P&D will have to make necessary changes in ADP with the help of Line Department(s).
1,n that case there are two possibilities: 1. Minor amendments can be made and will be included as "ADP errata"; 2. Major revisions to the ADP allocation (ongoingfnew project ratios). In the Jatter, reallocation of projects by P&D sections and Line departments is made. The process has to start over form 5, to be able to revise the Department programmes.
130r Pederal Budget (?).
A-12
APPENDICES
APPENDIX E: SCHEME STATUS
(First reference: Paragraph 7.2.1, ''SCHEME RELATED ACT/V/TIES'~
In the appendix tigure 1 below, the dynamics of the scheme status within the Project life cycle phases bas been drawn. A proper defmition of scheme status is essential for the SIS, in order to trace down the various processes to be executed on a scheme during it's existence.
A scheme cao exist for one or more years. The first year, a scheme is called new. If the project bas been approved, publisbed in the ADP hook and funds have been released by the fmancial department, a scheme becomes ongoing fortherest of it's project life (the scheme becomes a physical project).
If a project set-up needs essential modifications after one or more years being ongoing, it beoomes a revised scheme, and bas to be re-defined ( or re-identificated) in the project identification phase. This occu"ence is indicated in the figure by the decision diamond <OK?>.
If a project is ended and evaluated, it beoomes a finished one and its data will oot be mentioned in the next year ADP hook. This occu"ence is indicated in the figure by the decision diamond <End?>.
To be able to receive funds for execution of the next ADP year, both new and ongoing scheme bas to be included in the oorresponding ADP hook and are up to approval un-approved for the that coming year.
Project 1if&.eycle (, ~ pha8es ..... \..ReJ ecte~
.------. ... :-:·:-:·: :·:·.·: :·:·.·.·:···:·::: .. :::·::::::::_::;·:·::·(r:::·::·::::·····:···:::·::::::::··::::::::::·:::::·:::: :.:::::::::.·.·:·:·:·:·:·:·.·:·:·. ::: ~ )\.:-e.~.)/\\\:}){:\)))/:: · .. ·.·.·.:::·: :·:-::: ::::::::;>:;:.· ...
' i
. . . . ... .
APPENDIX FIGURE 1: Scheme status within Project life cycle
Notes: 1. Revised schemes are in principle ongoing as well.
..................... . .. . . . . . . . .. . . . . . . . . . . . . . .·.·.·.·.·.·.·.·.·.·.·.·.
2. A new, but oot yet approved scheme can be publisbed in the ADP hook. Those un-approved new schemes have to be approved during the coming year ( otherwise it will have to start over the whole procedure during the next year ADP process).
3. A new frevised scheme cao be approved, but oot yet "ongoing" because no financial release bas been provided yet by the fmancial department. This occu"ence is indicated in the figure by the questionmark in the circle (?). Insome cases, this situation cao last for the whole ADP year.
4. A normal, oot revised ongoing scheme will airoost automatically be approved for the coming ADP year. This is the case for 60-70% of the ADP budget allocations.
5. A revised scheme is also ongoing, but cao be un-approved for the next ADP year. It is oot clear what the fmancial implications are for such situation.
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1'HE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
APPENDIX F: TEXT SHEET "ACTIVITY DIAGRAM OF SCHEME REIATED ACTlVITIES WITHIN TIIE P&D" (First reference: Paragraph 7.2.2, "SCHEME RELATED ACTlVITIES WITBIN THE P&D")
Note: Activities are accompanied by the executing or involved parties (management, functional units).
#. Activities (ADP process step)
1. Preparing Sector/District allocations (3)(4) Including preparation of "support letter", attached to the "Framwork sectoral ADP"
Coordination section Sectoral sections Management P&D
3. Appraisal (9) This activity can be performed ones or more times. The "sectoral project lists" contain both "new'' and "ongoing" projects. This list contains very summarized scheme data. "Revision suggestions" can he done by letter or telephone.
Sectoral sections
4.1 Approving & printing 2nd Draft ADP (10)(11) Modifying "1st Draft ADP"
Management P&D Sectoral sections Representative Financlal Department
Entering "2nd Draft ADP" into "ADP database" and printing DPC
Approving "2nd Draft ADP" Management P&D Sectoral sections Representative Financial Department
4.2 Finalizing comments & preparing working paper (13) Finalizing comments, printing "3th Draft ADP"
Sectoral sections DPC
Preparing "Working Paper" Coordination section Sectoral sections Management P&D
4.4 Printing book & copy to review database (16) Entering more-ftnat comments and Printing ADP hook
Sectoral sections DPC
Copy "ADP database" to "Review database. ADP database is kept into existence! DPC
4.5 Marking un-approved schemes approved ( .. ) Sectoral sections DPC
... continued ...
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APPENDICES
.. Activities continued ...
6. Project monitoring Monitoring projects, sending comments and maintaining sectoral statistical data
Sectoral sections Modifying "Review database", printing project progress overviews, printing approved project reports
DPC
DATA STORES/MESSAGES
Sector/ district allocatloos Paper
Modilied lst Draft (sectoral) ADP Modified sectoral project lists, stapled together
ADP Database Computer-based data store, existing out of three poor structured DBASE ftles, accessible by a slow user interface and contains various report functions. Up to eight copies are running to make multiple data entry possible. Total size about 2 MegaByte. See appendix G for structure.
Sectoral Data & Scheme files Loose-leaf data stores
Review database Almost identical with the ADP database, except small modifications in the DBASE ftles structuring.
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THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
APPENDIX G: ADP DATABASE/PROGRAM STRUcruRE 91/92 (First reference: Paragraph 7.2.5, ''SIS SYSTEM DEFINITION'~
For transferring data from the current ADP database structures into the new Scheme Information System, one need to understand the meaning of the current structure. To achleve this, the entry sereens and database ftle structures of the current ADP databases are analysed. Also, within an overview table, the financial data of the current ADP program is being explored in more detail.
1 ADP 91/92 INPUT SCKEENS
#. = Screen field numbering; 12.. = Numeric fields;
= Character fields; (##) = DataBase fieldnumbers (data elements) Fields marked by * are not found back in the ADP hook.
Screen 1. (ADP11.DBF)
1. GENERAL SERlAL NUMBER 2. SECTOR SERlAL NUMBER 3. SECTOR CODE 4. SUB-SECTOR CODE 5. DISTRICT CODE 6. YEAR
Screen 2. (ADPll.DBF)
1234 (1) 1234 (2) 12 (4) 123 (5) 12 (7) 1234 (9)
1. SCHEME NAME: ••••••••••••••••••••••••• (10, 11, 12, 13)
2. *PURPOSE ••••••••••••••• (14) 3. NEW/ONGOING 4. PROCESS STAGE 1 (16) 5. STATUS
(15) ( 17)
6. *AREA •••••••••••••••••••• (18) 7. *REMARKS ••••••••••••••• (19) 8. ESTIMATED COST
1. TOTAL 1234.567 (20) 9. EST EXP(1989·90) 2. REV COST 1234.567 (21) 10. REV EST(1990·91) 3. F.E.C 1234.56 (22)
*4. REMARKS (23)
123.456 123.456
11. PROVISION FOR 1991·92 12. FOREIGN EXC REQ FOR 1991·92
(24) (25)
1. CAPITAL 123.456 (26) 1. TOTAL 246.912 (29) 2. REVENUE 123.456 (27) 2. OWN RESOURCES 123.456 (30) 3. TOTAL 246.912 (28) 3. FOREIGN AID 123.456 (31)
EXPENDITURE DURING SUBSEQUENT YEARS *4. F.A.S •••••••••••••••••••• (32) 1992-93 740.743 (33) 1993·94 123.456 (34) By Plan 123.456 (35)
Calculated fields Screen 2. PROVISION FOR 1991-92, TOTAL:
11.3 = 11.1 + 11.2 (28) = (26) + (27)
FOREIGN EXC REQ FOR 1991-92, TOTAL: 12.1 = 12.2 + 12.3 (29) = (30) + (31)
EXPENDITURE DURING 1992-93: .... = 8.1 - (9. + 10. + 11.3 + 1993·94 + By Plan)
IF 8.2 <> 0 THEN 1992-93 = 1992·93 · 8.1 + 8.2 (33) = (20)·( (24)+(25)+(28)+(34)+(35) )
IF (21) <> 0 THEN (33) = (33)·(20)+(21)
Notes Screen 2. 1. The EXPENDITURE DURING 1992-93 field (33), the fmancial allocation of the local component for the next ADP year, is used to make the balance closed for the whole project period. 2. If arevision has been made, the value of REV COST field (21) insteadof the TOTAL field (20) wi11 be used as the total project allocation of the local component.
A-16
Options screen 2. 3. N New
G Ongoing 4. 1 With ECNEC
2 " CDWP 3 " PDWP 4 Under preparetion 5 ••• ?
5. A Approvecl B Un-Approvecl C Feasibility Stage D Identification Stage R Under Revision
Screen 3. (ADP2.DBF)
APPENDICES
ESTIMATED PHYSICAL IMPLEMENTATION UPTO JUNE, 1990 SER NO. SUB·SCHEME MODE DATA UNIT 1. --··········------·· (9) - (10) 123456.789 •••••• (11, 12)
15.
Screen 4. (ADP3.DBF)
PHYSICAL TARGETS ENVISAGED UPTO JUNE, 1990 SER NO. SUB·SCHEME MODE 1. ·······--··········· (9) • (10)
15.
2 FINANClAL DATA &TI>RAGE ADP 91/92
123456.789
DATA UNIT ------<11, 12)
Appendix figure 1 on the next page showsus the fmancial entity data storage by the current ADP databases. From left to right the used fmancial entities are found. From back to forward the various ADP years are indicated. The cubes represent for that entity and that year the amount of money involved (e.g. money allocated, money released, ... ).
The relation between the fmancial entities beoomes visible by the sequence (i.e the Original PC-1 allocation precedes the Last revised PC-1 entity; the Last revised PC-1 allocation precedes the Actual allocated entity; ... ). This relationship is stressed by the Function and Project Life Cycle indications at the top of the graph. The graph is madefora record in the ADPll.DBF database filefora 8 year project in the fourth year of it's existence. The according fieldnumbers of the database file are indicated by the numbers in brackets (same as used inthesereens above!).
The fmancial entities consist out of aLocal component (Pakistani Rupees) but contain in two cases also a Foreign Exchange Component (like US$). Por some entities, only totals are known (i.e. Original PC-1), and therefor this data is oot usabie for monitoring or evaluation per year. The relation between Actual allocated and Breakup provision are a bit hazy: The latter bas been introduced for some reason, but seems to replace a part of the first entity (?).
Only data needed for the current ADP year book are actually stored, as is found back in the structure of the used ADPll.DBF database file. However, to be able to monitor- or evaluate projects, the missing data (the doted cubes) are neededas well. Most of this missing data has been collected in former years, but stored in files on floppies and such practically unaccessible! Also, for most entities the Foreign Exchange Component is missing, and should be collected and stored in a future database structure as well in order to perform proper monitoring and evaluation tasks.
This graph will be used as basis for a new database structure of the financial entity (see paragraph 7.3.3).
A-17
~ ~
~~ ~~ 'i" z iS I:' ~.;;;! ;::-"!!'j :-:- 15 ~ s: ~ ~ !":"
~~ <r'"C so.. ~~ c g. ~ ~ a ('I> .. "' ~ 2 C"\ (")
§; ~ t;.('D
s· 0' '"I
~-S't::T" t::r('D
El ~ ~ §
(")
~ § 1.:; ('D
~ = g ::t. ~9 s· '"I
I)Q ('D
~ i§: ...... ('D ;::-0..
~~ ~ !:l <::! '-
.... I
'0 0
"' "' §: ('D
§ ~
~·
FUNCfiON:
ENTITY:
NAI1E in current ADP database:
Years:
·ri :ro •U :o ·....:I
[ OBJECTIVES I CMiANs I I RESULTS I ···-.
l!voluaûon- 'l$t~ """"" I Approval (ADP Planning) .. ~!:][];[H];EfH(]{ . . = = = =.= :~11[f; Momtonng' Evaluation i"'"'"?
Original PC-1
Original Estimated
Total Local
Last Revised PC-1
Expenditure Year a
uand 11
Estimated Total FEC
:U ... ::w:· ... , ·'r.....' "
nl General ~ n n n n I Specified I Actual
A11ocated Breakup
Provision
Provision Year Breakup "and" Provision
FER Year ~ Year
~ ,. ,. "
- ,.., - - - - 1111 - -·--- ~-·--- ··---
la
I
\ -------
PinaDclal Releases
Revised Estimates
Year-1
- ~.- - - - ··- -,. ........ . . "
<}!~S.(>J
;',:.:..j
:ro ·u :a l..:l V
(1111) = Lj _ Stared dara-element(s) - •amoont of money"
_ Not-stored but existing - dala-element(s)
.0. _ Below bold 1lD8 • - Stored "Total"
I: CJ = ~ Total"local COllis (21)
FEC = Foreip Bxd!aDge Component
FER - Foreign Bxcbange - Requiered
-----""' Project
Expeaditures Expenditure
upto Year-2
A:::+w:v---
: :. ,: .. : .. f ~ : . . .; ro: ·:u: ::a:· ~'-·····'
ADP11.DBP field-Fl<lld Saem Fl<lld 11 2,11 Name 20 8.1 B_TOTAL 21 8.2 IULCOST 22 8.3 lU'BC 24 9. EXP_198S 25 10. RJL1986 26 11.1 P_CAP_1987 27 11.2 P_RBV_1987 28 11.3 P_TOTAL 29 12.1 P-BJL1987 30 12.2 F_SOU_l987 31 12.3 F_AID_1987 33 (calc.) B_1986_87 34 .. 1!_1987_88 35 .. BBY_1988
~
I ~ >-
i ~ ~ ~
~ ~
~ ""d R<> ~t:J
~~ g "' ~
APPENDICES
3 ADP 91/92 DATA STORES FILE STRUCTURES (BY FIELDS/DATA ELEMENTS)
ADPll.DBF (Screen 1. and 2.) Field Field Name Type Width
1 GSN Numeric 4 Dec
2 SSN Numeric 4 3 TEMP GSN Numeric 4
Data on entry Screen x x
ADPline# 1 2 other x x
4 SECTOR Numeric 2 x x
Not found in ADP
x
5 •. SUB SECTOR •• Numeric •.••••.. 3 ....••••. x ••••••..•••••.••••• x •••••... 6 PROV LOCAL Character 1 x 7 DIST-CODE Numeric 2 x x 8 FATA- Character 1 x 9 YEAR Character 4 x x
10 •• SCHEME 1 •••• Character ••••• 25 ••.•••••• x .•••••••••••• x •••••••••...•• 11 SCHEME-2 Character 25 x x 12 SCHEME~ Character 25 x x 13 SCHEME-4 Character 25 x x 14 PURPOSt Character 15 x x 15 •• NEW ONGO •.•• Character •.•••. 1 ..•..•••• x ••...•...•••••••••• x ...••••• 16 ST ~ROCESS Numeric 1 x x 17 STATUS Character 1 x x 18 AREA Character 20 x x 19 REMARKS 1 Character 15 x x 20 .. E TOTAL:-•.•• Numeric •..••••. 8 ...... 3 •• x ••••••••••••• x •••••••••••••• 21 E-R COST Numeric 8 3 x x 22 E-FtC Numeric 7 2 x x 23 REMARKS 2 Character 7 x x 24 E EXP 1985 Numeric 7 3 x x 25 •. R-E 1986 •••• Numeric •..••••• 7 ...... 3 •• x ••••••••••••• x •••••••••••••• 26 P-CAP 1987 Numeric 7 3 x x 27 P-REV-1987 Numeric 7 3 x x 28 P-TOTAL Numeric 7 3 x x 29 F-E R 1987 Numeric 7 3 x x 30 .. F-SOU-1987 •• Numeric •.•••••. 7 .....• 3 •• x ••••••••••••• x •••••••••••••• 31 F-AID-1987 Numeric 7 3 x x 32 F~ Al~ 87 Character 20 x x 33 E l986-87 Numeric 7 3 x x 34 E-198r-88 Numeric 7 3 x x 35 •. EBY_19S8 .... Nurneric .......• 7 ..•.•. 3 .. x ••••••••••••• x •••••••••••••• .. ........... ...... .
** Total ** 352
ADP2.DBF (Screen 3.) Field Field Name Type
1 GSN 2 Numeric 2 SSN-2 Numeric 3 TEM~ GSN 2 Numeric 4 SECTOR 2- Numeric 5 SUB SEf 2 Numeric 6 DIST C~E2 Numeric 7 ISN 2 Character 8 PSN:2 Character
9 SUB 21 10 MOOt 21 11 DATA-21 12 UNIT:21
65 SUB 215 66 MODE 215 67 DATA-215 68 UNIC215
** Total **-
Character Character Numeric Character
Character Character Numeric Character
ADP3.DBF (Screen 4.) Field Field Name Type
1 GSN 3 Numeric 2 SSN~ Numeric 3 TEMP GSN 3 Numeric 4 SECTOR 3- Numeric 5 SUB SEf 3 Numeric 6 DIST C~E3 Numeric 7 !SN 3 Character 8 PSN~ Character 9 SUB~1 Character
10 MOOt 31 Character 11 DATA-31 Character 12 UNIT~1 Character
65 SUB 315 66 MODE 315 67 DATA~15 68 UNIT~15
** Total **-
Character Character Character Character
Width 4 4 4 2 3 2 2 7
20 1
10 6
20 1
10 6
584
Width 4 4 4 2 3 2 2 7
Dec
3 ~~epeating data elements: single entity, . ___j and each should be placed in single record
3~
20
1g]l • • 1 dem as above
2~ J_j 10 6
584
A-19
THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
APPENDIX H: DESCRWfiON OF SCHEME DATABASE TABLES STRUCTURES
(First reference: Paragraph 7.3.3, ''ENTITIES OF TABLES")
This appendix elaborates the data structure of the identified SCHEME DATABASE tables in paragraph 7.3.2, up to the implementation level on a computer. Per table, the next items are discussed:
Data elements, also named 'attributes' in SOL or 'fields' in DBASE environment Data element key function
* (part of) Primary key. Always data needed and non-modifiable after creation. < Foreign key. Primary key in higher level table, and therefore linked/related.
Data element name convention Table narnes have three characters. Data elements within tables start with the table name, foliowed by an underscore and thereafter a unique data element extension of maximum 6 characters (i.e Table AAA can have a data element with data element name AAA XXXXXX). However, if a data element comes from data element of anotlier table, that foreign data element name is used (e.g. Table AAA can have a data element BBB _ YYYYY). By this approach the exact souree of the 'data element in use' can be traeed down. See examples in GEN-tabie (next page)
Data element type (with data element length) C Character data element (A,B,C,D, ... ,0,1,2,3, .. ). N Numeric data element (0,1,2,3, ... ). If numeric data element is used for Pakistani currency ( =Rs.)
the data element must be multiplied by 1000 for real the value. B Boolean data element (T,F) D Date data element (DD-MM-YYYY: 01-01-1980 .. 31-12-2099)
Data element function description Some extra comments on data element (e.g. relation withother dataelementsin other tables).
Initial size Estimated size of table at introduetion of theSIS in the P&D, measured in number of records, and given in kilobytes (Kb) for a computer storage medium. Used numbers of records: 1400 number of new, ongoing and revised schemes in a typical ADP year 200 number of new [approved] schemes in a typical ADP year 300 number of new [approved, unapproved, rejected] schemes in a typical ADP year 400 number of new and revised schemes in a typical ADP year.
Yearly growth Estimated growth of tableper succeeding year after introduetion of theSIS in the P&D. Example: 4 years after introduction, the actual size of the table will be: (Initial size) + 4 * (yearly growth).
Example of records (only for code tables) Example records in table, and some comments to explain working.
Appendix table 1 gives an overview of the SCHEME DATABASE tables, the pages where to fmd them, and the size they take on a computer storage medium.
A-20
APPENDICES
APPENDIX TABLE 1: Tables of ScHEME DATABASE with initial sizes and during operation
p Record Initial values Yearly growth a si ze ............................................. ... .............................................
g (bytes) # Records Kb. # Records Kb. e
1 GENERAL ENT I TY TYPES 21 Gen: General scheme data 17 1400 24 300 5 22 Tit: Scheme title 32 4200 134 900 29
CODE TABLES 22 CSec: (Sub)Sector code 34 64 2 23 CDis: District code 32 23 1 23 CDep: Department code 36 30 1 24 CFFa: Foreign Funding agency code 142 20 3 4
2 STATUS ENTITY TYPES 24 Sta: Yearly scheme status 54 1400 76 1400 76 25 SoP: Stage of scheme processing 40 1600 64
CODE TABLES 25 CSoP: Stage of Processing codes 27 7 26 CSta: Status codes 23 14 26 CRev: Revision types codes 61 5 ? ?
3 FINANClAL ENTITY TYPES 27 Fin: Yearly projects finance 73 5600 438 800 59 28 FEC: Yearly projects finance, FEC 67 560 38 80 6 28 REV: Yearly recurring costs/revenues 55 140 8 30 RAS: Budget planning calculation sheet 97 1400 136
4 TARGETS ENTITY TYPES 30 Tar: Physical targets of project 25 7000 175 1000 25 30 TOs: Target description 28 14000 392 2000 46 31 PxA: Yearly planning and achievements of targets 28 14000 392 7000 196
5 PROBLEMS ENTITY TYPES 32 Pro: yearly encountered project problems 91 2800 255
CODE TABLE 32 CPro: Problem type code 32 11 ? ?
=None, or little Totals: 1816 770 ? = Unknown, but not very much
1 GENERAL ENTI'IY TYPES tables Life-time valid basic project data. Used for identification of a project, and for report functions.
Gen: General scheme data This table contains per project scheme data, that is valid for whole project life cycle, and having a single occurrence. The assignment of the SIC (in this tabletheGEN SIC data element) is done automatically afterentering the sector of the scheme, and simply raises the last entered scheme number in the same sector of the same year by 'one'.
·····~······ .dcli:±tb·······················~··•· ···~······.··~=~~~~··~ê;0:J.~rld$h~~~?l~k:ta:::ni~g~~~l~i~~~é························••••·•·•···•·•····· ~>>~:~Î~~r:: •••••••~ : iÎI~~tmÎdllla~~~ticiäl) . . .. . ... . .. . . .. . ..
•••••:•···.••••~:ir~~-e*•••••••···~·····~ •••··~~~~n~wäfl~:~~~y~~~~e)••••••••••••••••••······ Initial size 1400 records.
17.
1400 * 17 = 24 Kb.
Yearly growth 300 records. 300 * 17 = 5 Kb.
A-21
THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
TIT: SCHEME TITLE Stores the scheme title in one or more records, each representing a row of 25 characters long. By doing so a flexible of is achieved, and efficient in use as well.
Initial size 1400 * 3 = 4200 records (3 = average number of scheme title rows) 32 * 4200 = 134 Kb
Yearly jp"Owth 300 * 3 = 900 records. 900 * 32 = 29 Kb.
l.b code tables for GENERAL ENTI1Y 1YPES
CSEC: (SUB)SECTOR CODE Stores the (sub)sector names, and is used as reference by the GEN-tabie for its (Sub)sector ID code. A (sub)sector is connected to a scheme for the whole period of a project. The frrst digit of the (Sub)sector identification code represent the sector, the second digit the subsector. If the second digit contains a space, the sector is intended. The sector code (frrst digit) is used as a part of the Scheme Identification Code (SIC), and therefore no changes should be made to the meaning of any record in this tablel
Initial size 64 records. 64 * 34 = 2 Kb. Y early jp"Owth Little to none.
Example of records for CSEe-tabie ID % %A %B %C
c CA cc CE CG E EA EC
y VA z ZA
A-22
NAME (Sector) (Sub-sector 1 of Sector) (Sub-sector 2 of Sector) (Sub-sector 3 of Sector)
FORESTRY FORESTRY Wl LDLI FE SER I CULTURE FISHERlES DEVELOPMENT RURAL ROADS PROGRAMME UNION COUNCILS' PROGRAMME
RESEARCH AND DEVELOPMENT RESEARCH AND DEVELOPMENT MISCELLANEOUS MISCELLANEOUS
mEP ID (Responsible Line- or Attached Department: table CDEP) (idem) (idem) (idem)
D D DE D DE c c CB
B <---- so the EDUCATIONAL DEPARTMENT, see CDep-table B
APPENDICES
CDIS: DISTRICf CODE Stores the (sub)sector names, and is used as reference by the GEN-tabie for its District ID code. A district is the geographicallocation of a project within NWFP. A is related to one
district. A district is connected to a scheme for the whole of a
Initial size 23 records. 23 * 32 = 1 Kb. Yearly growth Little to none.
Example of records for CDIS-table ID NAME A GENERAL B PROVINCIAL PROGRAMME C PESHAWAR D NOWSHERA E CHARSADDA F MARDAN
W MALAKANO AGENCY
CDEP: DEPARTMENT CODE Stores the Department names, and is used as reference by the GEN-tabie for its Sponsoring department, Responsible department and Executing department ID codes. A department (line or attached) belongs to the NWFP government, and can sponsor or execute projects. Departments are not necessary connected for a life-time to a scheme, but mostly will. The frrst of the code represent the line-department, the second digit the attached department If the second contains a the is intended.
Initial size 30 records. 30 * 36 = 1 Kb. Yearly growth Little to none.
Example of records for CDEP-table ID ABBR NAME % (line department) %A (Attached department 1) %B (Attached department 2>
B EDUCATION DEPARTMENT BA MUS&T MANAGEMENT UNIT FOR STUDY AND TRAINING BB
Z P&o PLANNING AND DEVELOPMENT DEPARTMENT
A-23
'THE DEVELOPMENT OF A SCHEME INFORMATION SYSfEM AT THE P&D, NWFP, PAKISTAN
CFFA: FOREIGN FUNDING AGENCY CODE Stores Foreign funding agency data (names, address, .. ), and is used as reference by the GEN-tabie for its Foreign runding agency ID code. A foreign funding '"'"'"nT't" the concerned project by funds, mostly by releases of foreign exchange
Initial size 20 records.
A is connected to a scheme for the whole · of a ·
20 * 142 = 3 Kb. Yearly growth 1..4 per year.
2 STATUS ENTITY TYPES tables Yearly changing project status data. Used for identification of a project, and for following the approval process.
STA: YEARLY SCHEME SfATUS Contains data for identifying schemes during ADP processing. A scheme get approved on the approval date. If the status is un-approved, and the ADP book bas been printed, the scheme bas to be approved before the cut-otT date, otherwise the scheme will be rejected. After approval and printing of the ADP book, the frrst fmancial releases on the financial releases date determines the official start year of the project.
Initia} size 1400 records. 1400 * 54 = 76 Kb. Yearly growth 1400 records. 1400 * 54 = 76 Kb.
A-24
APPENDICES
SoP: Stage of scheme processing In the STA-table, only summarized status data is stored in order to decide if the coneerDing scheme can be printed for the ADP book. The SoP-table, however, stores more detailed data of the approval process for new and revised schemes. Only those, because their extensive approval 'adventure' are of interest. This detailed approval process, the Stage of Processing, gives the possibility to follow the approval decisions from various decision levels within the Pakistani bureaucracy. By following this process we are able to:
locate more specific delays in the approval process; analyze the approval process for statistica} reasons.
After all needed levels for approval have been passed, the scheme status in the Sta-tabie will automatically be updated, and the various records of the scheme for this year will be closed for modifications.
Initia! size None Yearly growth Only New and Revised schemes are passing threw Approval processing mechanism ( =400 per year), and per scheme an average of 4 processing stages are to be passed (of a total of 6 stages, see CSoP-table): 400 * 4 = 1600 records 1600 * 40 = 64 Kb
2.b code tables for STATUS ENTI1Y 1YPES
CSOP: STAGE OF PROCESSING CODES Stores processing stage data, (stage of processing name; budget to reach for this stage), and is used as reference by the SoP-tabie for its Stage of Processing ID code. Certain 'stage of processing' are done for those projects that exceed a eertaio minimal project budget limit: cheaper projects do not need to be high level authorities, expensive projects do. This
limit is modifiable in this table, needed, due too inflation.
Initia! size 7 records. 7 * 27 = 1 Kb. Yearly growth None (unless changes are made in approval process composition).
Example of records for CSoP-table ID BDGT NNI: B 0 Head of attached department D 1,000 Departmental Secretary F 1, 500 Department al Sub C0111111 ttee H 7,500 With PDWP J 60,000 With CDWP K 60,000 With ECNEC
A-25
'fHE DEVELOPMENT OF A SCHEME INFORMATION SYSfEM AT THE P&D, NWFP, PAKISTAN
CSTA:STATUSCODES Stores the status data (status name, and if status 'means' that it is approved for the ADP), and is used as reference by the STA-tabie for its Status ID code. For more information about the scheme status see aPJ)enldtx
Initial size 14 records. 14 * 23 = 1 Kb. Yearly growth None (unless changes are made in status composition).
Example of records for CSTA-table JD ADP NAME A New A1 New, Identification A2 New, Feasibility A3 New, Un-approved A4 T New, Approved 8 T Ongoing 83 Ongoing, Un-approved 84 T Ongoing, Approved C Revised C2 Revised, Feasibility C3 Revised, Un-approved C4 T Revi sed, Approved D Rejected E Finished
<=== If scheme has ID A4, it means it is approved <=== idem <=== If scheme has ID 83, it is not (yet) approved
Note: status of ID B occurs only after A4 or C4 and financiel releases, or after B4 and printing ADP book.
CREV: REVISION 1YPES CODES Stores revision names, and is used as reference by the STA-tabie for its Revision type ID code. The reason for revision of every revised scheme will be stored for statistica} reasons. Some standardized revision reasons has been formulated
Initia} size 5 records. 5 * 61 = 1 Kb. Yearly growth Unknown.
Example of records for CREV-table ID NAME A Late release of funds B Change of scope C High cost due inflation D Slow implementation due to weather conditions
Z other
A-2f)
APPENDICES
3 FINANClAL ENTI'IY 1YPES tables Yearly budget allocation and currency use. Used for planning, monitoring and evaluation purposes.
FIN: YEARLY PROJECTS FINANCE This table comprehends the fmancial entities (local component) for defming the fmancial state of a project at a certain moment. Figure 7.7 in paragraph 7.3.3 gives an overview of the used fmancial entities in this table (and for the FEC-table), their occurrence in time (relative to an ADP year), and the relation between the entities. If a new (un-approved!) project bas been announced to the P&D, the number of years determines the number of records to be created. Every record represents the fmancial state for that ADP year. If a new scheme get rejected, the according records will be removed from this table. Foreign exchange projects make use of a separate table to store the foreign exchange
Initial size 1400 * 4 = 5600 records (4 = average number of project years) 5600 * 73 = 438 Kb. Yearly growth 200 * 4 = 800 records. 800 * 73 = 59 Kb.
A-27
'fHE DEVELOPMENT OF A SCHEME INFORMATION SYSI'EM AT THE P&D, NWFP, PAKISTAN
FEC: YEARLY PROJECTS FINANCE, FOREIGN EXCHANGE COMPONENT Is created for the same function as the FIN-table, but contains only room for Foreign Exchange Component (FEC) data, and has slightly deviant specification for the Actual allocated entity. Together with the FIN-table, the most fmancial data for a foreign funded would be known.
. .
Initial size 140 * 4 = 560 records (140 = 10% foreign exchange consuming projects) 560 * 67 = 38 Kb. Y early growth 20 * 4 = 80 records. 80 * 67 = 6 Kb.
REv: YEARLY RECURRING COSI'S/REVENUES This table is created to support project evaluation activities by storing two financlal entities. First, the recurring cost of a project after the normal project period. Those cost are not financed by the normal ADP budget, but by other means. Secondly, the recurring revenues of a project, during, and after the normal project period. The estimated values, per year, are to be entered at start of the project. The actual values are registered in the according records as they are available
Initial size None. Yearly growth
. . .. . .. . ..
Unknown (if 10% of projects add yearly one record: 140 * 55 = 8 Kb)
A-28
APPENDICES
RAS: BUDGET PlANNING CALCULATION SHEET This is a temporary created table, to support the RAS program and other ADP budget plannings functions. At the beginning of the ADP process for every non-tinisbed ( or non-rejected) scheme a single record will be created, in order to support the various budget planning calculations by supplying the RAS program of adapted data. After the printing of the ADP, some financial entities of this table will be transferred to the FIN-tabie or FEC-table, and the RAS-tabie will be
Initial size 1400 records. 1400 * 97 = 136 Kb. Yearly growth None.
A-29
THE DEVELOPMENT OF A SCHEME INFORMATION SYSfEM AT THE P&D, NWFP, PAKISTAN
4 TARGETS ENTI1Y 1YPES tables (Physical) project targets and yearly achievements. Used for planning, monitoring and evaluation purposes. See appendix I for working of the target entity. See tigure 7.9 in paragraph 7.3.3 for the screen lay-out in Scheme database demo-program, a screen of the implemented Scheme database demo program.
Initia! size 1400 * 5 = 7000 records (5 = average physical targets per scheme) 7000 * 25 = 175 Kb. Yearly growth 200 * 5 = 1000 records 1000 * 25 = 25 Kb.
TDS: TARGET DESCRIPTION
Stores the target descriptions in one or more records, each representing a row of 20 characters long. By doing so a flexible way of storage is achieved, and efficient as well (same motivation as for Trr-table). The TDs-table belongs to the Tar-table, and are linked bythe identification code.
Initia! size 1400 * 5 * 2 = 14000 records (2 = average number of target description rows). 14000 * 28 = 392 Kb. Yearly growth 200 * 5 * 2 = 2000 records. 2000 * 28 = 56 Kb.
A-30
APPENDICES
PxA: YEARLY PLANNING AND ACHIEVEMENTS (PHYSICAL) TARGE'I'S This tahle is related to the Tar-tahle, and stores for every target, for a certain "time period" (year or quarter) the amount to achleve (=planning). After that time period, the achlevement of the ohjective should he known and the result stored in the same record. This can he repeated for more time periods for a single target. By summarising the achlevements from the start of the project up to the current date, and relate thls numher to the Total planned of the TAR-tahle, we get the relative target achlevement Thls relative target achlevement multiplied to the Proportionally share of the TAR-tahle gives the relative project achlevement thls ( olltvsical
Initial size 1400 * 5 * 2 = 14000 records (2 = initial numher of time periods per target) 14000 * 28 = 392 Kb. Yearly growth 1400 * 5 * 1 = 7000 records (1 = growth of time periods per targets, if quarterly records get reduced to yearly records). 7000 * 28 = 196 Kb.
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THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
5 PROBLEMS ENTITY TYPES tables Reasans for deviation of the fmancial expenditures and physical achievements with respect to former defmed targets.
PRO: YEARLY ENCOUNTERED PROJECT PROBLEMS This tabie is created to store yearly the encountered probiems by the project executors. The structure is force that the probiem description is kept brief, but if this encounter opposition from daily practice a apart description table can be created as done for the title of the GEN-table. A probiem type can be stored only one time per year per scheme, in order to avoid repeating descriptions of the same effect. Therefore, the probiem types, as stored in the CPro-tabie, need to be contrived in such way that all effects of problems are recognized. After one or more years, this table will need a reconstruction in order to imprave the information quality of the data and to reduce the .. .,,.,", .. ,,rl r~-..,. ... ,tT.,
Initial size None. Yearly growth 1400 * 2 = 2800 records (2 = average number of probiems per project?). 2800 * 91 = 255 Kb.
5.b code table for PROBLEMS ENTITY TYPES
CPRo: PROBLEM TYPE CODE Stores problem type descriptions, and is used as reference by the PRO-tabie for its Problem type ID code. For the moment a one-dimensional tabie is being used (as DIS-tabie ), but after some years and experiences this can be upgraded to a more-dimensional (as SEC-table) tabie in order to achleve higher
Initial size 11 records. 11 * 32 = 1 Kb. Yearly growth Unknown (depends onthefme-tuning of problem definitions)
Exampie of records for CPRO-table ID NAME 1 Funds not released by Financial department 2 Change in scope of work 3 High cost for land (not available) 4 Land acquisition case in court (stay order)
99 other
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APPENDICES
APPENDIX I: DESCRIPTION OF THE TARGET ENTI1Y 1YPE (First reference: Paragraph 7.3.3, ''ENT/TIES OF TABLES")
The Target entity types have been defmed in order to keep track of the non-fmancial project achievements. Project achievements, as one is able to see it, have mostly a physical nature like the 'length of finished roads' or 'numbers of build schools', but also non-physical achievements can he represented by this entity like the 'number of trained scholars'.
A practical rule of thumb is to identify a clearly visible benchmark for a target, like the 'finishing of a building phase' within a construction, e.g. the fmishing of the fundament, all walls placed, etc.
Achievements are preeerled by measurable targets, and have to be formulated in advance. Normally one can distinguish within a project numerous targets to achieve, however, two rules have to be obeyed fora fmal selection out of those: 1. A single target must be measurable in it's relative achievement; 2. All targets tagether must enclose the whole project effort.
To determine the relative contribution of a target to the whole project is rather difficult. In this example the 'time needed to achleve the target' is used, and related to the 'total time of all estimations' of the identified targets as the relative contribution1
•
This results per target in a relative number: the proportionally share of (physical) target to whole project effort. If one knows the project time table of activities, the proportionally share is determined as below:
A target on itself bas it's own measurable unit in order to be able to determine the performances up to the moment of measurement. In our example this will result in the next numbers:
1Alternative 'relative contributions' can be basedon the financial needs for achieving a target relative to the total project
expenditures. Also combinations are possible. This is a point for further research.
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THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
The Total planned units to achlevefora target, gives us the fmal key to measure the target achievements during operation of the project. The achievements are entered quarterly in the SCHEME DATABASE for the according targets. The total project achievement is furthermore a simple calculation by adding the individual target achievements:
lf theSIS is used as above, the decision makers within the P&D have a usabie tooi during project monitoring:
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Every time the results of the (physical) achievements come in, one is able to calculate the total project achievement for that moment. It is possible to perform advanced statistical analysis on 'grouped' projects, like the execution of a sector performance analysis for a eertaio time period (by the proverbia! One-key-stroke!). The results are able to be checked during field trips to the projects.
APPENDICES
APPENDIX J: DESCRIPTION OF SIS PROCEDURES ON SCHEME DATABASE (First reference: Paragraph 7.3.1, ''PROCESS MODEL'~
In this appendix the computer supported procedures of the SIS get elaborated. The procedure numbers are the same as used in tigure 7.5. The data elements are derived from the tables as described in appendix H. Only a brief description of the procedure is given by 'stepping threw actions to perform' and adding notes if needed. For descrihing the procedures in relation with the SCHEME DATABASE, a certain convention in the typography is followed, all related to the attributes of the tables: data elements.
CAPITAL = Name of data element in table Bold = Description of data element 'Description' = Value of the according data element(s) /talies = Other value, or specification
Appendix H is indispensable while reading the procedures, for the descriptions of the field elements.
l.a Calculating for ongoing projects the Scheme budget need for the coming ADP year The purpose of this procedure is to calculate 'as best as possible' the budget need for every ongoing (notrevised) scheme for the coming ADP year. The total of the budget needs are used in procedure l.d.
The calculation of the Ongoing scheme budget need comprehends two steps per scheme, and is visualized in appendix tigure 1.: 1. Calculation of 'project expenditure' up to cumnt ADP year (E=B). 2. Subtracting 1. from the official project budget allocation (Last revised PC-1) up to coming ADP year
(E=A). This value (A-B) should be the new budget allocation (Actual allocated) for the coming ADP year, because it corrects for deviations in budget expenditures of former years.
ADP Year
1989/90
1990/91
1991/92 r-------~4+4+~4+4+•
: 1992/93
L-------s=~ 1993/94
1994/95
Actual Allocated
APPENDIX 1!1GURE 1: 'Calculation structure' for procedure l.a (based on ftnancial data for a single project as in ft gure 7. 7)
Notes:
Financial Releases
_,J; .... :: .. ~~·- . . _, ············---...Jo·-~~~1::::::::::::· .. ················ .. 1
# = Known value ? = A - B
.. = Yet unknown
a. For step 1. accounts that the best value is used: if no data is available for the Project expenditure entity, a lower 'quality' entity is used. The according narnes in the FIN-table, in order of examination, are: - FIN EXPEND (Project expenditures) - FIN-RELEAS (Financial releases) - FIN=AA (Actual allocated, this step is not indicated in appendix figure) The quality of data is determined by the availability of the Project expenditure. For step 2. accounts that the result, the FIN AA value for the coming ADP year, is stored in the RAS CA C of the RAS-table. If decision-nÏakers want to adjust this computer corrected allocation, the manual corrected allocation must be stored by the RAS CA M of the same record.
b. The entities refer to the yearly project totals of the local component and are stored in the FIN-table. FEC calculations are mostly not involved during the planning process.
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THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
c. Thus, the FIN-tabie will only be 'questioned' during the budget allocation procedures. At the end of the ADP process the new FIN_AA value for the approved ADP year is fitled (see procedure 4.e).
l.d Calculation for new projects the Sectoral/district budget allocations by RAS program The purpose of this procedure is to calculate the most optima! budget allocations for the new projects in every sectors and districts within the NWFP.
This is done in 3 steps: 1. Summarizing the allocations of procedure l.a 2. Subtracting 1. from the total ADP budget allocation (received from authorities). 3. Diffuse the residue over the sectors and districts within the province, in accordance of the Sectoral
and Districts development objectives (result of procedures l.b and l.c).
Note: The calculations in step 3. are performed by the RAS program. The exact working of the RAS program is described in [Abbink, 1992]. The RAS-tabie will function as interface between the RAS program and the SCHEME DATABASE. The calculation results are not stored by the Scheme database program, because no provision is made to store this type of aggregated data of sectors or districts.
l.e Formulate for revised schemes the Scheme revision request's During this procedure a list of Revised schemes, marked as such during the monitoring, has to he printed. Purthermare the reasoos for revision have to be elaborated per scheme.
This is done in 3 steps: 1. Printing sector-wise a list of poor performing schemes, marked in the STA-tabie for the coming ADP
year by 'status' = revised (CSTA_ID). 2. Printing of reports per scheme, concerning
- fmancial allocations and expenditures during former ADP years; - target pianning/achievements during the former ADP years.
3. Descrihing per scheme the project shortcomings, partly based on 2., partly based on other data.
Note: The report printing of 2. can be standardized, but it is unforeseen yet what data exactiy is needed.
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APPENDICES
3.d Entering data of new and revised schemes in computer This procedure covers standard data entry operations on the SCHEME DATABASE. Mostly not all scheme data will be available yet, because the PC-1 proforma of the departments get in delayed. However, the next data elements are minimal required for new schemes: GEN-table:
(Sub)Sector SIC (automatically assigned afterentrance of Sector and using coming ADP 'year') District Sponsoring department Responsible department Executing department
TIT-table: Scheme title text
STA-table: Status (automatically assigned: New) Total project budget, local component Total project budget, FEC ('0' if oot foreign exchange project)
RAS-table: Last revised PC-1 (the required budget allocation, local component, for coming ADP year)
TDs-table: Target description (multiple targets)
TAR-table: Total planned for target for whole project period (multiple targets)
PxA-table: Planned amount for target for coming ADP year (multiple targets)
Notes: a. Primary key data elements, marked by '*'in appendix H, are assigned automatically by computer. b. The FEC component is oot needed for calculations, but for report functions mainly. c. All the known Actual allocated values are stored in the RAS-table. At the end of the ADP process,
procedure 4.e, those values get transferred to the FIN-table. d. The entered new schemes form together with the revised and ongoing schemes the 1st draft ADP.
This list can be printed out, but is done too in the next procedure, 4.a.
4.a Selecting new and revised schemes for ADP. Calculating the Budget allocation for every ADP scheme. During this procedure schemes are selected in accordance with the available budget means. This selection process is manually very 'iterative' due the many calculations that have to be made to make the budget fitting. It can be possible, for instance, that the selected schemes exceed the budget and that per scheme a new allocation for the next year has to be made.
We distinguish 3 different type of actions: 1. Printing of draft ADP's for oversight of schemes in the process, and thus containing the most recent
data. 2. Selection of newjrevised schemes for the coming ADP year, by the P&D management. 3. Executing the RAS program to re-allocate budgets over schemes, if 'needs exceed means'.
Notes, refer to above actions: 1. The printing of draft ADP's, whatsoever version it may he, comprehends data from the next sources:
- GEN-Table, TIT-table - FIN-table, FEC-table (Total budget allocation, Expenditures) - RAS-tabie (Budget allocation for coming ADP year) - TAR-table, TDS-table (target descriptions) - PxA-table (achievements targets, planned for coming ADP year) For an oversight of financial entities used in the ADP reports, see tigure 1 in appendix 7.7.
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THE DEVELOPMENT OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
2. Schemes are selected by modifying (for the coming ADP year record of the scheme): SoP-table:
Stage of processing (lower authorities approval) Approved decision date Approval decision Approval comments
3. The calculations in step 3. are performed by the RAS program. The exact working of the RAS program is described in (Abbink, 1992]. The RAS-tabie will function as interface between the RAS program and the SCHEME DATABASE. Data modifications on SCHEME DATABASE: RAS-table:
RAS reallocation (value per scheme)
4.c Processing Scheme moditications and Budget adjustments and recalculating the Budget allocation. This procedure processes all the comments on the 2nd draft ADP, made by higher authorities. The character of this procedure as rather similar to that of 4.a, except that the directives become much more critical towards the calculation part. The intensive use of the Scheme Database requires a smooth operating report- and calculation functions.
Apart from the 3 types of actions for procedure 4.a, this procedure need furthermore: 4. Sectoral budget balancing operations. 5. Individual scheme reports for various data, concerning
- fmancial allocations and expenditures during former ADP years; - target planning/achievements during the former ADP years; - financial allocations for next ADP years; - target planning for next ADP years.
Note: The RAS program for action 4. is used by freezing certain sectors/districts or individual schemes during calculations. Por identifying freezed schemes are used:
RAS-table: Sector (group freezing) District (group freezing) Corrected allocation tixed (individual scheme freezing: .T.)
4.d Processing project approvals This administrative procedure is the alternative for the schemes of procedure 4.c.
Two main actions are identified: 1. Processing approvals for individual schemes, or groups of schemes.
SoP-table: Stage of processing (higher authorities approvals) Approved decision date Approval decision Approval comments
STA-table: Status ( automatically assigned Approved if all 'needed' authorities are passed) Approval date (automatically copied from SoP-tabie if Status = approved)
2. A single time printing of the 3th draft ADP (See procedure 4.a, note ad 1.)
Notes: a. The 'needed' authorities ( action 1., STA-tabie) depends on the total scheme budget, and this value is
automatically compared by reading from: STA-table:
Total budget allocation, local component CSoP-table:
Minimal total project budget needed to be approved at this processing level
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APPENDICES
b. Before approving, more accurate financial data is required from the departments FIN-table, FEC-table:
Original PC-1 (new schemes only, for all project years) Last revised PC-1 (revised schemes only, for next ADP years)
RAS-table: Actual allocated, various types (for coming ADP year only)
4.e Publishing ADP book After the receiving the fmal approval from the NEC, the ADP hook will get printed and printed and published.
The next actions are in given order performed: 1. Printing Not-approved schemes list, containing schemes with
STA-table: STATUS = (New Or Revised Or Ongoing) And Un-Approved
Assigning for all projects of the list the STA-table:
Cur-oFF DATE (NOTE: If no approval is reached before the scheme's cut-off date, the scheme will be marked as Rejected. The cut-off date lays before the start of next ADP year procedure l.a)
2. Printing Pinal ADP, containing schemes with STA-table:
STATUS = (New Or Revised Or Ongoing) And Approved (See procedure 4.a, note ad 1.)
Then automatically are performed: 3. Remove all scheme data from SIS for schemes with
STA-table: STATUS = Rejected
4. Por schemes with STA-table:
Status = ( Ongoing Or Revised) And Approved assign STA-table:
Status = Ongoing 5. Por schemes with
STA-table: Status = New And Approved
copy Pin-table, FEC-table:
ÜRIGINAL PC-1 data elementstoLAST REVISED and assign STA-table:
Status = New 6. Por all schemes with a record in the RAS-table, the Actual Allocated data elements bas to be copied
to the FIN-tables and FEC-table. Thereafter is the RAS-tabie emptied. 7. Official start of ADP year (coming ADP year becomes current ADP year)
Note for action 5: The data stored in the Original PC-1 entity is from now on ftxed in theSIS, and is used for evaluation purpose at the last Project life cycle phase 7.: the "Project evaluation")
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THE DEVELOPMENf OF A SCHEME INFORMATION SYSTEM AT THE P&D, NWFP, PAKISTAN
6.a Processing project progress data and corrections During this procedure tbe project data received from projects are processed.
1. Por New scbemes, enter FIN-table:
Financial releases by financial department After this first fmancial release, SIS will automatically assign STA-table:
Status = Ongoing 2. Por Ongoing scbemes, enter
FIN-table, FEC-table: Financial releases by fmancial department Project expenditures
PxA-table: Achieved amount of target during current ADP year (multiple targets)
PRO-table: Problem type Problem description faced Remedial measures taken
6.b Verifying if project progress meet pre-defined performance level During this procedure every project will be matbematically evaluated on its performance.
1. Calculate deviation between FINANClAL entities of project, like a. ratio of Actual Allocated : Financial Releases b. ratio of Financial Releases : Project Expenditures c. ratio of Actual Allocated : Project Expenditures. Camparing results a., b. and c. with Predefined fmancial flow norms, and mark scbemes witb poor ratio's for procedure 6.c.
2. Calculating Total project acbievement of TARGEfS entities, like described in appendix 7.9. Calculate deviation between target achievements and planning, like - ratio of Total project achievement : Targets planned for current period Mark scbemes witb poor ratio's for procedure 6.c.
Note: 'Predefined financial flow norms' are agreed by tbe P&D management befare every ADP year.
6.c Preparing review comments for lacking projects During this procedure tbe possible reasoos for 'lacking projects' are determined.
Lacking projects are marked as sucb during procedure 6.b. 1. Eacb of tbem is scrutinized, by defining if relation exist between fmancial ratios 1. and target ratio 2.
of procedure 6.b. During this process tbe data from tbe projects of PRO-table:
Problem description faced Remedial measures taken
are used as information. * If YES: Pinancial deviation probably delermine lacking target achievements. Reasans for lacking
fmance bas to be investigated: Cbecking with Pinancial department wby lack of fmancial means for project. Solving problem.
* If NO: Determine wby tbe project targets bas not been met, and take measures for future budget allocations and sectoral planning process.
Cbecking witb project wby low expenditures of available fmancial means.
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APPENDICES
2. Writing Review comments of above results and defining (by management P&D) if project has to be revised. * If YES, mark
STA-table: Status = Revised for coming ADP year.
* If NO, describe appropriate measures, and scrutinize if PRO-table:
Remedial measures taken as formulated by project are in accordance with the P&D opinion.
6.d Printing project progress reports and sending with review comments to departments This adrninistrative procedure provide the feed-back operations to the departments of the project monitoring results.
1. Printing project progress reports, containing per scheme - fmancial allocations and expenditures up to now; - target planning/ achievements up to now; - Ratio's of procedure 6.b
2. Sending reports with Review comments of procedure 6.c to line departments.
The departments are supposed to check the values of the project progress reports, and respond on mistakes. Also, responses on the Reviews comments are expected.
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