Change and Resistance in Developing Countries Part 1

Part 1: The Faces of Resistance

The Metaphor Language Research Center has taken many assignments to develop strategies for improving processes in developing countries in South Asia and Africa. This is the first of two articles and offers some observations from our experiences.

Some typical obstacles to change

  • Establishing your right to be heard in the right forum
  • Gaining attention of deciders
  • Personal impact on deciders
  • Absence of an efficient process to gain consensus frustrates all and shelves your initiative
  • Competing priorities, typically for money
  • Limited amount of time change agents have to invest
  • Long held antagonisms between stakeholders
  • Interminable talking

The rhetoric of resistance to change (as compiled by a group of change management practitioners)

– The “Resistors’ Rules of Thumb”– How non-formal, inertial resistance works:

  • Don’t participate, but work on “the boss” off-line, if possible
  • If forced to participate, don’t engage or take any responsibility for action
  • If forced to talk, gently explain why there is no better way of functioning
  • No overt disagreement with the objectives of change
  • No conflict, no emotion
  • If change is mandated, there’s no time to implement it
  • If change is mandated, new problems will arise later to delay or sidetrack action
  • If change is mandated, there will still be other, higher priorities
  • If the change agent is an outsider, s/he didn’t understand
  • If some change takes place, countervailing forces can still be marshaled to bring things back
  • The change agent will eventually go away
  • In a big organization, any force can be successfully resisted, including the “big boss”

Some additional Learnings re: Resistance

  • It is not necessarily powerful bad guys who just want to take care of themselves– The leading problem is more often complexity and inability to characterize the problem in a way that motivates action (make it “Mind-Sized”)
  • A passive form of resistance is common– which results in change being agreed but not ultimately implemented. Apparent causes are lack of funds to achieve the change. Actual roots typically rest in unwillingness to admin current or past weakness in the organization that would result in the leader’s loss of stature or loss of face.
  • If all stakeholders are not participants in creating a vision of how the change would work, it will not be achieved
  • Open discussion among stakeholders must be achieved
  • Clear communication with a common vocabulary is necessary
  • Realistic plans and milestones must be set

Anecdotes re: social and cultural complexities that can compound the problems of change in developing countries

  • Leadership: The population in Muslim countries have no cultural heroes except Mohammed, because of deeply held religious beliefs
  • Hidden power structures can circumscribe solution options (a seemingly obvious change in in health care training was blocked in one country because the health minister owned a building that would be vacated by the change)
  • Westerners education levels are often inversely proportional to their effectiveness in developing country situations (the best ideas in Zambia government restructuring came from tribal chiefs)
  • In some African countries, such as Zambia and Zimbabwe, the impact of AIDS has hollowed out government effectiveness
  • Absence of basics such as clean water, effective transportation, education and health facilities compound difficulties in achieving change, even when all parties are committed. (Maslow’s hierarchy of needs plays a role here too)

Metaphor Language For Cross-Cultural Work Effectiveness Zambia Government Restructuring

Example: When Powerful Parties Want Change but the Path Is Not Clear and Risks are High

Situation/Issue

When many different change processes need to be initiated at the same time, and when the success of one will influence the success of another, it is of vital importance to have excellent communication, efficiency, and alignment. The World Bank’s principal institutional development specialist was faced with such a challenge as he advised the secretary to cabinet of Zambia about how the country could go about reforming the operations of all of its cabinet ministries or agencies.

The World Bank and the International Monetary Fund had insisted on important reductions in the cost of government operations as a precondition for loans that would help this new democracy gain fiscal stability. The newly elected leaders had run on a platform of better service and more accountability in government and agreed with the Bank’s objective, but the question was how to accomplish it without creating economic chaos and possibly civil unrest.

The stakes in managing the change process were high. Loss of confidence by aid agencies would cost the government needed financial resources, and loss of public support would increase the risk of labor union resistance, loss of momentum and potentially a coup attempt. The specialist and the secretary to cabinet discussed how to proceed and decided that the 50 top civil servants and a group of donor representatives and functional specialists would need to be brought together if a satisfactory plan was to be developed. They were certain that it would take a week to cover all the issues and that they would be lucky to succeed.

They were concerned about the:

  • Need for a way to encourage government officials and donor agencies to understand the nature and depth of today’s problems
  • Need to stimulate fresh thinking about how to change 20-year-old bureaucratic approaches
  • Problems of managing a very large group of people with different cultural and national backgrounds and widely differing objectives and experiences
  • Need to hold participants’ interest and enthusiasm through a long and complex analysis and avoid the deadening effect of speech after speech

Stakeholders

The stakeholders in this broad change process included:

  • Permanent secretaries who run the various government agencies. In the previous government the incumbents were subject to regular change, apparently unrelated to performance. The new democratic government now told the permanent secretaries, “You are accountable to the people through the parliament. Reexamine your functions, improve the quality of service, and reduce costs.” The permanent secretaries knew this was an enormous challenge because policies and procedures were not in place and morale in their organizations was low.
  • Local administrators were accountable to the local electorate, but controlled very few resources. They wanted the authority and means to fulfill their obligations.
  • Labor unions were stakeholders because the government owned and operated a wide number of businesses due to the policies of the previous socialist government. They were not invited to the first strategy-setting session but would be invited to later ones. They had made it clear they would paralyze the country with strikes if their members were not treated fairly.
  • Elected officials knew that success of this reform would bear heavily on whether the move to democracy would endure.
  • World Bank representatives wanted the government to conceive a plan that could reduce government dominance of the economy without causing political disruption
  • The British Overseas Development Administration had been working for years to help upgrade the quality of government administration, particularly in local communities. It understood the need for real commitment by government officials and hoped for a plan that would distribute power in a balanced manner.

<h3>A.The approach taken by the change agent</h3>
The institutional specialist was highly concerned that both a lack of creativity and personal concerns of people in powerful positions would slow if not block the identification of a change strategy. He engaged a change management specialist and they planned out an intensive four-day meeting. He knew each government agency needed to make its own unique changes but that all the agencies needed to agree on a number of common points.

  • How the government would decentralize authority
  • How planning, budgeting, and financial control would be improved
  • How to improve personnel performance and redesign the reward system
  • A layoff policy

The workshop was brought to order by the deputy secretary to the cabinet, who outlined the challenges facing the government. The group was broken into nine subgroups of five or six which focused on one of the four key processes of government listed previously. The subgroups built visual models of the processes, compared their views in plenary sessions, and reached full consensus on all consequent matters. Their sequence of analysis followed the proven quality improvement method of examining the current state, projecting an ideal vision, and creating a transition plan. In addition, they defined terms of reference for leaders of change in individual agencies and the overall program coordinator.

<h3>B.Results/Benefits</h3>
The workshop was highly participative and everyone had the opportunity to thoroughly voice opinions and help build the plan. The maps of the present state provided an opportunity for catharsis, where the government employees could air their grievances about the former government and pronounce their willingness to change.

While making the second maps, the group generated fresh ideas, most notably for the intractable problem of how to move thousands of people out of government jobs without creating disastrous unemployment. The transition maps gave participants the opportunity to make commitments to change actions. Because donor agencies came to more clearly understand the local political situation, they were able to see how they could contribute to the reform process.

Constructing the maps provided a springboard for mutual understanding, and teamwork reached unprecedented high levels. Donor agency people had the opportunity to solve problems with people whom they had once monitored and controlled and they were struck by their competency. Government officials got to know and respect the donors as people and respect the personal contributions they could make to thinking through and solving problems. The relationship paradigm between the international agencies and the government changed, at least for a time, from donor-recipient to partnership in problem solving. The results exceeded all the objectives the stakeholders had set and established a firm plan for reform. The President was privately briefed and supported the plan fully.

Bringing New Energy to Quality Improvement Programs

An I.T. department example

Introduction

A Cambridge, Massachusetts-based software company  decided to launch a TQM program in its worldwide Information Systems (I.S.) department. The principal driving factors were user dissatisfaction with the level of service, particularly problems with the support of global infrastructure of networks and servers. Many I.S. people felt that they were overworked, that management wasn’t setting clear priorities and that their users were excessively demanding and unappreciative.

A small team that was put together to define and guide the TQM program. They identified the underlying problems as being no documented processes, no agreed metrics, little alignment of roles and responsibilities.  Just as the TQM program was being defined, the company was purchased by a larger competitor. Management priority went to urgent business matters and the problems of infrastructure quality quickly became secondary to issues related to the merger of the two companies. TQM wasn’t abandoned but its priority was clearly, if unofficially, reduced by lack of promotion. The I.S. directors did meet with the TQM team to define where they wanted the organization to go but didn’t take personal or public leadership for TQM. The team kept contact with the Directors through hallway conversations and occasional reports.

Designing the TQM program

The team structured the program around the three part model favored by the Center for Quality Management: Customer Focus,  Process Improvement and Total Participation.

Given the changing circumstances, the team decided that rather than investing in TQM training for all staff members, it would go where there was energy on the lower levels of the organization: Bringing clarity to roles and responsibilities, achieving organization alignment around clear priorities, and fixing the Help Desk  cross functional process which was generating a lot of internal customer dissatisfaction. The team decided that training for managers, typically the first phase of a TQM program, would start later, after process analysis was well under way and benefits were becoming evident.

Metaphor Language mapping to align organizations and improve processes

Each group leader within the I.S. organization and the leader of the Help Desk agreed to sponsor a visual language mapping session. Many people were initially skeptical about investing time in this activity while there was so much other “real” work to be done, but they agreed to give the TQM team a chance.

This is an overview of the method used:

Map Today’s Operation

Each leader brought most of his or her group members together for two hours.  They were introduced to the visual language Village Mapping which they used to build a model showing:

  • Their customers, other groups with which they interact and functions in their own group
  • The relationships between these groups
  • A qualitative assessment of the relationships and work flow
  • Evaluation of the environment, statement of their values

 

The metaphor of the Village Mapping language equates a process to a village.  Buildings represent places where work gets done, such as groups, functions or departments. The nature of the connecting road shows the quality of the relationship between buildings. Fires, tornadoes, volcanoes and other symbols show difficulties within the village and its environment.

This is not an actual map segment, but its contents are typical of a Today map:

It shows a hypothetical village from the Systems group’s view. They see themselves as having a good relationship with Operations but a poor one with Applications. Information is often lost when they work with the Help desk.  The symbols provoke discussion about matters that often lie “under the table” but have a great impact on an organization. The maps keep discussion points in context and
record them. Key points in the map are described in a narrative on a flip chart.

Each of eight groups built maps of their current (today) state over a three week period. The TQM team then brought them to a meeting of the I.S. Directors. The directors reviewed the maps and narrative documentation and built themselves a consolidated map of l.S. today. The exercise helped them become
more clear about the depth of some of the problems facing the group.

Voice of the Customer

The maps represented an internal view of how the group was functioning. To have an external view, the TQM team then worked with each group to segment their customers (both internal and external to I.S.), identify people to interview, structure open-ended questions to ask and train them in interviewing techniques.

During the interviews, the main points were recorded in the customers’ own words. Each group member interviewed at least one customer (in teams of two.)  Their charge was to listen and not contest, argue or justify. When all interviews were done (from 5 to 15,) the team got together and rolled the specific points into broader statements of customer concerns and requirements. This told the group
what their customers wanted and had the important impact of building customer focus in the individual interviewers.

Mapping the “Ideal” Process

The TQM team called a meeting of all 25 managers in I.S., including the Directors. Reflecting on both the Today’s Operation maps and the Voice of Customer interview results, they broke into tables of five to build vision maps showing how they thought l.S. should ideally operate. After about 90 minutes, a
representative of each table presented their map to the others. The maps recorded a lot of creative thinking about how I.S. could change itself to solve its problems and meets its customer expectations. Each map showed different ways that customers needs for new computer applications and ongoing support could be met more effectively than today and how a different division of responsibilities could
increase system reliability.

Following completion of the presentations, the managers talked about what they all had in common and the unique merits of each map. The directors stayed into the evening to build a consolidated map. The vision is targeted to bring these benefits to their customers:

  1. Easy to do business with I.S.
  2. I.S. is an international business partner
  3. I.S. is more responsive
  4. Greater value is provided
  5. Improved quality and better service

During the days following, the consolidated vision map was discussed with all the managers who participated. They signed it to show agreement. Each group was then asked to build their own vision map to detail how they would function in the overall I.S. vision. They were asked to report back if what they found to be their ideal in any way conflicted with the overall ideal.

 

Mapping the Change Plan

When the group vision maps were complete, the managers reconvened to verify that there were no omissions or conflicts. They then set out to map the strategies and actions needed to implement it and the obstacles they would have to overcome. The managers followed the same process as with the Ideal Maps, except that this time they employed the River Mapping method described earlier.

They developed six rivers (strategies) that included accountabilities and target dates for:

  • Realignment of functions
  • New functions to be developed
  • International coordination –
  • internal systems
  • TQM program
  • Increased emphasis on people

Benefits

Metaphor Language helped the software company dive into process improvement with 60 to 70% of total staff participating. This and the Voice of Customer technique made an important increase in customer focus. The negative energy inherent in the dissatisfaction with the current operation helped propel the group toward an agreed vision and action plan. The visual language made it easy (and the colorful stickers even made it fun) for groups to work together and follow a disciplined change process. By engaging the group leaders and staff members in Mapping their daily issues, it broadened ownership for TQM.

Within four months of initiating their TQM effort, the I.S. department had put in place:

  • A globally agreed assessment of their problems
  • Clear direction statements from their customers
  • A vision of how they would ideally function in the future, including roles and responsibilities
  •  An agreed action plan that included the entire staff’s ideas about the actions and obstacles necessary for success

 

The TQM program got under way with concept, skill and tool training.  Virtually every person in the worldwide I.S. organization could describe the goals of l.S. and their own roles and responsibilities in reaching it. Within a short time, I.S.’s users were commenting that their service calls were being answered quicker and more effectively and that I.S. attitudes are becoming very customer oriented.  I.S. staff people carried on the action plan and launched more than a dozen process documentation and improvement efforts.

 

Conclusions

  1. TQM can take root even in the absence of strong, driving management leadership by drawing energy from the middle and lower levels.
  2. High involvement in direction setting builds widespread ownership for TQM and should be considered for any program
  3. TQM professionals should consider using Metaphor Language when they need a tool to tap into an organization’s energy
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