BUILDING A LEGACY OF PERFORMANCE

IMPROVEMENT IN RWANDA
Steven J. Kelly, CPT John Palmucci, CPT

The country of Rwanda has achieved impressive development progress since the 1994
genocide. In 2012, the United States Agency for International Development initiated a Human
and Institutional Capacity Development program to strengthen local government agencies
and civil society. An important component of this effort is building a core nucleus of Rwanda
consultants and managers. A project goal is to build Rwanda into a hub of performance
improvement capacity to support the Central Africa region.

RWANDA HAS IMMENSE CHALLENGES sistence agriculture–based economy to a middle income

Rwanda has achieved impressive development prog-
ress since the 1994 genocide against the Tutsi minority.
Programs to reconcile Hutus and Tutsis and to reinte-
grate nearly 3.5 million returning refugees have been
widely successful. The country enjoys relative peace and
extremely low corruption, and although it is landlocked
and lacking natural resources (see Figure 1) , GDP growth
has averaged 7% since 2000, and GNI per capita has risen
from $330 in 1994 to $1,250 per capita in 2012. Rural
poverty rates have dropped from 60% to 45% during the
same period, and life expectancy at birth has risen from
30 years to almost 63 years today.
Rwanda’s population of more than 11 million is con-
centrated in a land area of 23,336 sq. km, making it the
most densely populated country in sub-Saharan Africa
at an estimated 430 people per square kilometer (CIA
Factbook, 2014). Despite this density, Rwanda is one of
the least urbanized countries on the continent, with about
18% of the population living in urban areas. Subsistence
farming dominates Rwanda’s economy, employing 80% of
the people and providing around 40% of the gross domes-
tic product (GDP).
Government of Rwanda Agenda
In response to numerous challenges, the government
of Rwanda (GOR) has set an ambitious development
agenda that aims to transform the country from a sub-
and knowledge–based economy characterized by steady
growth within the context of effective regional integra-
tion. These aspirations are articulated in the GOR’s Vision
2020 (GOR, 2000) and the Economic Development and
Poverty Reduction Strategy 2013–2018 (GOR, 2012).
As a part of these reforms, the GOR launched the
Multi-Sector Capacity Building Program, which empha-
sized the importance for ministries and agencies to
cultivate a culture of continuous performance improve-
ment. To build capacity holistically, the GOR established
the National Capacity Building Secretariat to provide a
national framework within which all capacity-building
interventions would be designed and implemented and
resources monitored and evaluated.
INTERNATIONAL ASSISTANCE
Rwanda has experienced intensive and somewhat dis-
jointed international assistance since the genocide. The
World Bank, the African Capacity Building Foundation,
the Belgian Technical Cooperation, and the African
Development Foundation have provided support through
a multi-sector capacity-building program. The United
Nations Development Program supported the govern-
ment’s reforms through the Ministry of Public Service and
Labor to modernize its structures and systems and to build
its capacity at the individual, organizational, and institu-
tional levels. The United States Agency for International

Performance Improvement, vol. 53, no. 8, September 2014

©2014 International Society for Performance Improvement
6 Published online in Wiley Online Library (wileyonlinelibrary.com) • DOI: 10.1002/pfi.21429

FIGURE 1. RWANDA IS IN CENTRAL AFRICA
Development (USAID), the largest single donor to Rwanda,
has implemented multiple programs in support of civil
society and government institutional capacity building
across all sectors.
While some development partners approached capac-
ity building in a holistic way, quite often interven-
tions were focused on technical training. They rarely
approached capacity building in a way that systematically
addressed gaps or barriers in both individual and institu-
tional capacity.
To assess the impact of these reforms, the Rwandan
Cabinet requested an independent review of 32 semi-
autonomous institutions. The reviews were conducted
from July to December 2008. A key finding (Adam Smith
International, 2008) from these functional reviews was
that restructuring, staff reductions, and other institu-
tional reforms had often come ahead of the development
of sound systems, processes, and mechanisms to enhance
efficiency and effectiveness. The review pointed out that
when it is not clear why an agency does what it does and
how it measures its own performance—two common
findings—it becomes difficult to assess whether reforms
are actually contributing to the higher government goals
of improving service delivery and making government
institutions more accountable and transparent.
As the findings of the functional reviews indicate,
despite impressive progress since 1994, Rwanda’s public
administration system still faces many challenges. Among
the challenges cited by Adam Smith International in its
2008 review, government institutions struggle with lim-
ited workforce capacity, underdeveloped information and
A project goal is to build
Rwanda into a hub of
performance improvement
capacity to support the
Central Africa region.
communication technologies, a lack of program moni-
toring and evaluation, inconsistent service delivery, and
difficulties implementing policy. The assessment further
revealed that the lack of success was due, in part, to poor
coordination, failure to link reforms to GOR priorities,
and the absence of adequate needs assessments.
The GOR is currently engaging in a strategy to overhaul
the performance and efficiency of both the public and pri-
vate sectors. As part of that strategy, a National Capacity
Building Secretariat has been formed, reporting to the
Ministry of Finance and Economic Planning so that capacity
building can better link to the planning and budgeting cycle.
HUMAN AND INSTITUTIONAL CAPACITY
DEVELOPMENT IN RWANDA
Project Overview
In May 2012, USAID initiated a five-year Human and
Institutional Capacity Development Project in Rwanda
(HICD/R). HICD/R seeks to improve the performance of
GOR institutions and civil society organizations (CSOs) in
support of GOR and USAID objectives and to institution-
alize the Human and Institutional Capacity Development
(HICD) approach to performance improvement within
the private and public sectors. HICD is a new model
(USAID, 2009; USAID EGAT, 2011) within USAID that
brings solutions in measuring and improving perfor-
mance for individuals and institutions. The complete
program in Rwanda applies the human and institutional
capacity development approach to support three compo-
nents, as depicted in Figure 2 (Palmucci, 2013):
1. Government institutions—providing focused HICD-
based performance assessments and assistance in im-
plementing targeted performance solutions to selected
government counterparts. One government counter-
part is envisioned for the project each year. Assistance
to prior-year counterparts will continue in successive
years, but the nature of assistance will evolve based on
opportunities, resources, and progress.
Performance Improvement • Volume 53 • Number 8 • DOI: 10.1002/pfi 7
 FIGURE 2. HICD RWANDA PROCESS
USAID identified Rwanda’s agriculture sector
as the initial focus area for HICD/R’s efforts. The
Ministry of Agriculture and Animal Resources
(MINAGRI) was selected as the first governmental
institution to partner with the project, focusing on
its public finance-management systems. Follow-
ing the assessment in autumn 2012, five key areas
were selected for support based on evidence-based
recommendations comprising human capital man-
agement; policy, planning and budgeting; financial
management; procurement; and internal audit.
HICD/R began working together with MINAGRI by
providing technical assistance in summer 2013. This
support is ongoing and anticipated to be provided
for several years.
2. Civil society organizations (CSOs)—providing fo-
cused HICD-based assessments and capacity devel-
opment to selected CSO counterparts by supporting
jointly agreed-on interventions to improve perfor-
mance. In HICD/R’s first year, six CSOs were select-
ed as partners, three agricultural and three from the
health sector: INGABO, IMBARAGA, and Conseil
de Concertation des Organisations d’appui aux Ini-
tiatives de Base (CCOAIB), African Evangelic Enter-
prise (AEE), CARITAS, and François Xavier Bagnoud
(FXB). After completing comprehensive assessments,
numerous performance interventions have been
agreed to, including strategy alignment, beneficiary
service improvements, advocacy, and communica-
tion effectiveness. Internal strengthening is being pro-
vided for functions such as human resources, finance,
information technology, and monitoring and evalua-
tion. Future CSO selections are ongoing and will also
be coordinated with NCBS and related Sector Work-
ing Groups.
8 www.ispi.org • DOI: 10.1002/pfi • SEPTEMBER 2014
3. Community of practice (COMPRAC)—developing
a community of professional, private-sector HICD
consultants to assist in implementing performance
improvement interventions for government and CSO
organizations and to provide continuing performance
improvement consulting services to the private and
public sectors. The COMPRAC was founded with 60
Rwandan professional business consultants with di-
verse backgrounds and professional consultancy skills
in finance, organizational development, monitoring
and evaluation, human resources development, policy
analysis, strategic management, and so forth. These
consultants are expected to play a key role in imple-
menting solutions to address the performance gaps
in partners’ institutions and in expanding the field of
human and institutional capacity performance im-
provement in Rwanda.
During the past 18 months, HICD/R has provided
these Rwandan professional consultants with practical
experience using HICD tools and methods through a
series of ongoing continuing education and coaching sup-
port. This coaching and professional development also
builds a variety of competencies ranging from strategic
business planning to tendering for public sector services
and prudent financial management. In addition, project
staff provides assistance with the International Society
for the Performance Improvement (ISPI) Certified
Performance Technologist (CPT) application process.
HICD/R also provides the community of practice mem-
bers with hands-on experience through paid internships.
The project encourages COMPRAC consultants to
offer HICD/R-related services on a commercial fee basis to
both private and public sector clients. COMPRAC mem-
bers are expected to play a key role in institutionalizing

FIGURE 3. GOAL OF HICD
and expanding the use of HICD in public and private
institutions. Over the 18 months, HICD/R has supported
an ambitious, diverse, and challenging Community of
Practice (COMPRAC) of Rwanda local consultants.
THE HICD APPROACH
HICD is a model of structured and integrated processes
(USAID EGAT, 2011) designed by USAID to support
systemic improved performance in USAID Partner insti-
tutions, including ministries, civil society organizations,
and other host-country organizations. This is done by
identifying root causes of performance gaps and address-
ing those gaps through a wide array of interventions
(see Figure 3). The model is designed to assist USAID
partners with practical methodologies and tools to clarify
and fulfill their mandates and provide the highest level of
service to constituents and stakeholders.
To benefit from HICD, an institution or organization
must be prepared. USAID’s experience indicates that
development partners are best able to benefit from the
HICD process when they meet a basic set of criteria that
includes an understanding of the process, an interest in
and commitment to it, and a baseline of institutional
capacity for undertaking the HICD process and following
through on identified reforms. An initial performance
assessment is conducted that provides specific recom-
mendations. This assessment forms the basis for inter-
ventions designed for partner performance improvement.
FOUNDATIONS OF PERFORMANCE
TECHNOLOGY
The HICD method is adopted from the scientifically
based performance principles from the field of Human
Performance Technology (HPT). HPT is a systemic
approach to improving productivity and competence,
using a research-validated set of methods and procedures
and a strategy for solving problems for realizing oppor-
tunities related to the performance of people and institu-
tions (ISPI, 2014; Pershing, 2006).
Specifically, HPT is a process of systematic steps to
influence individual and organization behavior and
accomplishment cost effectiveness. It is a combination of
three fundamental processes—performance analysis, cause
analysis, and intervention selection—and is fully scalable
to individuals, small groups, and large organizations.
HPT has antecedents over a century with con-
tributions from many researchers and practitioners
(Bernardez, 2011), although the discipline is often seen
to have originated with the work of Tom Gilbert (1978)
in the early 1960s. Solutions to problems identified are
drawn from a wide range of interventions that in turn
are drawn from many other disciplines, including behav-
ioral psychology, instructional systems design, organiza-
tional development, and human resources management
(Bernardez, 2011; Chevalier, 2003). HPT stresses a
rigorous analysis of present and desired levels of perfor-
mance, identifies the causes for performance gaps, offers
a wide range of interventions with which to improve
performance, guides the change-management process,
and evaluates the results. Decisions are data driven for
both analysis and evaluation (Guerra-Lopez, 2006).
Comprehensive needs assessment on the front end of
assistance is critical.
The International Society for Performance Improvement
(ISPI) is the professional association that promotes the
application of HPT in all spheres of action (ISPI, 2014). A
performance-based certification (Certified Performance
Technologist) ensures uniform standards and codes of
ethics in practice. USAID recognizes this credential and
emphasizes use of these experts to lead assessment teams.
A PRINCIPLES-BASED DISCIPLINE
The HPT approach has been shown to be able to address
a wide range of situations. Even though there are limit-
less variations on the models applied, at heart HPT is
a principles-based discipline. It is always systemic and
reflects a holistic view; it is both performance focused
and data driven. In addition, it focuses on end results,
involves partnerships with the client, and strives to add
value beyond defined objectives. Practitioners are sys-
tematic in their application of a deliberate and evidence-
based process.
In the larger context of the organization as an adap-
tive system, HPT focuses on three levels of performance
variables that ultimately determine the performance of
Performance Improvement • Volume 53 • Number 8 • DOI: 10.1002/pfi 9
 FIGURE 4. UPDATED BEHAVIOR ENGINEERING MODEL
organizations and individuals: (1) the broader organiza-
tion, (2) critical work processes, and (3) the individual
job and performer. Often called the anatomy of perfor-
mance (Rummler & Brache, 1990), it is analysis of these
levels that is key to understanding and applying the
HPT approach. These levels within the broad scope of
performance architecture (Addison & Haig, 2006) are
integral to understanding and reinforcing the success
of organizations. An increasing emphasis in the field is
on adding value beyond the individual client (Kaufman,
2009) to the broader arena (the Mega level), so that
all institutional performance initiatives ultimately must
address societal needs and contributions.
BEHAVIOR ENGINEERING THROUGH
PERFORMANCE SYSTEMS
Performance improvement at the job level, as issues of
processes and organizational policies are aligned, can be
attained through application of the behavior engineering
model. This model distinguishes between the capabilities
the individual brings to a job and the environmental fac-
tors that may support or impede individual performance.
The model has been updated in recent years (Binder,
1998; Chevalier, 2003; Riha & Binder, 2011), and it still
includes the original six cells across the two performance
dimensions (see Figure 4).
10 www.ispi.org • DOI: 10.1002/pfi • SEPTEMBER 2014
Likewise, performers operate in what is called a human
performance system (Rummler, 2007). All desired job
output is produced by five components: (1) performer;
(2) inputs such as forms, orders, and so on; (3) output
such as inquiries answered and forms processed; (4) con-
sequences that include events that affect the performer
either positively or negatively; and (5) feedback on the
consequences of the output.
This approach builds on the behavior engineering
model with the understanding that individual perfor-
mance in an organization is always a function of the pre-
viously mentioned components. Consistent performance
is a function of six factors: (1) proper performance speci-
fication, (2) elimination of task interference, (3) ongoing
monitoring and feedback, (4) consequences for actions,
(5) appropriate knowledge and skill, and (6) match of
individual capacity. In most cases of poor job perfor-
mance, the cause is a breakdown in one or more elements
of the non-performer components.
PERFORMANCE IMPROVEMENT USING
HICD IS SCALABLE
As a donor agency, USAID’s goals are many and encom-
pass a wide diversity of interests. HICD practitioners,
using HPT principles and tools, can improve the quality
and sustainability of partner client improvements and
 FIGURE 5. HICD PERFORMANCE MODEL
progress. This is because its approaches are scalable in
three ways (Kelly, Coughlin, & Novak, 2012):
• It offers a method for individual project assessment
and technical assistance for specific partner clients.
• It provides ongoing catalyst and stimulus when cou-
pled with technical assistance to embed and sustain
institutional change.
• It addresses broad systems to facilitate improved sector
or country program results.
In support of HICD initiatives, HPT provides a strong
framework for accelerating institutional capacity develop-
ment and performance. The focus on a principle-driven
approach that is results oriented, involves systemic and
systematic processes, is value-added to overall outcomes,
and is conducted in partnership with the client allows for
flexibility in application of specific models customized
for the client and the environment (Kelly & Novak, 2007).
The anatomy of a performance model provides a basis for
consultants and agents of change to address all the vari-
ables in the institutional system during analysis and pre-
scription for change. Relying on the validated elements of
the human performance system allows for the definition
of interventions at the individual and team level that will
be adapted and sustainable. It ensures that mega results
are always included in formulating institutional objec-
tives and strategies, linking organization outcomes to
societal needs (Kaufman, 2009).
APPLYING HICD SYSTEMATICALLY
HICD is a model of structured and integrated processes
designed by USAID to identify root causes of perfor-
mance gaps in USAID Partner institutions and to address
those gaps through a wide array of interventions (e.g.,
ministries, civil society organizations, and other host-
country organizations). The model is designed to assist
USAID partners with practical methodologies and tools
to clarify and fulfill their mandates and provide the
highest levels of service to constituents and stakeholders
(USAID EGAT, 2011). The HICD framework is based on
a model that provides a systematic process for analyzing
and improving performance (see Figure 5).
As already noted, a key focus of the HICD/R concept
is developing performance technology methods and skills
within the local Rwandan consultant professional com-
munity.
LEVERAGING LIMITED RESOURCES
THROUGH COMMUNITIES OF PRACTICE
Among the oldest elements of building both market rec-
ognition and higher standards of professional application
are communities of practice—groups of people who share
information, insight, experience, and tools related to an
area of common interest (Wenger, 1998). A community’s
focus is often on a professional discipline such as res-
ervoir engineering or biology; a skill such as machine
repair; or a topic such as a technology, an industry, or a
segment of a production process.
Communities of practice have always been part of
the informal structure of professions. They form spon-
taneously as people seek help, try to solve problems, and
attempt to develop new ideas and approaches. Some say
that spontaneous communities of practice have always
been the real vehicle through which technical knowledge
spreads through organizations. Spontaneous communi-
ties of practice are informal. People participate in them
as their interest, time, and energy dictates. Although they
Performance Improvement • Volume 53 • Number 8 • DOI: 10.1002/pfi 11
usually focus on a particular topic or domain, the specific
issues they focus on change over time as the needs and
interests of their members change.
Communities are held together by passionate inter-
est and value. Communities of practice frequently form
around topics community members have invested many
years in developing—topics they are often passionately
interested in, such as a science, a craft, or a manufactur-
ing process. But communities of practice are not just
celebrations of common interest. They focus on practi-
cal aspects of a practice, everyday problems, new tools,
developments in the field, building recognition of benefit
and success in the market, and things that work. People
participate because the community provides value.
Although in many cases community members may
be in competition for resources or work, they frequently
turn to each other to help solve technical problems.
Because they are often linked, both to each other and
to suppliers, universities, and others outside their orga-
nization, they often keep members informed of new
developments in the field. Because community mem-
bers share a common technical interest, they can share
ideas and concerns with others who really understand.
In addition, praise from community members is often
the most meaningful because technical peers really
understand the difficulty of the work or the brilliance
of an innovation. As a result, people often have a great
deal of their professional identity tied up in their com-
munities.
CULTIVATING A SUCCESSFUL AND
SUSTAINABLE COMMUNITY
What makes a community of practice succeed, no matter
what the form, depends on the purpose and objective of
the community combined with the interests and resources
of the members of that community (Wenger, McDermott,
& Snyder, 2002). Communities should evolve naturally.
The nature of a community of practice is dynamic, and
the network should be designed to support shifts in focus.
It is important to create opportunities for open dialog
that include inside and outside perspectives. Although
members and their collective knowledge are the group’s
most valuable resource, it is also beneficial for them to
look outside of the membership to understand the differ-
ent possibilities for achieving their professional develop-
ment goals. There is a need to allow different levels of
participation, both from the intense core and through the
more passive members who learn from a limited level of
involvement.
The community should create opportunities for par-
ticipants to explicitly discuss the value and productivity
12 www.ispi.org • DOI: 10.1002/pfi • SEPTEMBER 2014
of their participation in the group. Flexibility should
be encouraged to drive the focus to the greatest area of
added value for members. Hopefully, this can be done
with a combination of familiarity and excitement. There
needs to be a regular rhythm for the community, with a
continual cycle of activities and events that allow for the
members to regularly meet, reflect, and evolve. The pace
should maintain an ongoing level of engagement to sus-
tain the vibrancy of the community, while not being so
fast-paced that it becomes unrealistic and overwhelming
in its demands.
CRITICAL SUCCESS FACTORS FOR
BUILDING A COMMUNITY OF PRACTICE
Communities of practice are both ancient and modern
organizational forms. There are four key challenges in
starting and supporting communities capable of sharing
tacit knowledge and thinking (McDermott, 2000). The
leadership challenge is to communicate that the com-
munity truly values sharing knowledge. The community
challenge is to create real value for members and ensure
that the community shares cutting-edge thinking. The
technical challenge is to design human and informa-
tion systems that not only make information available
but help community members think together. And the
personal challenge is to be open to the ideas of others
and to maintain a thirst for developing the community’s
practice.
Addressing these challenges is critical to the success
of communities of practice. Without them, communities
often flounder or fail. It is important to focus attention
around topics at the heart of the performance improve-
ment profession, where leveraging knowledge will have
a significant financial or competitive impact. A well-
respected community member has to act as an early coor-
dinator to keep people informed of what others are doing
and to create opportunities for people to come together
to share ideas. There must be a realistic momentum to
ensure that people have time and energy to participate. A
major limiting factor for a community’s effectiveness in
sharing knowledge is the time people have to participate.
Events must be timed realistically to match members’
availability while keeping a sense of progress.
In our context, it is critical to match the core Rwandan
cultural values with the prevailing professional codes and
standards rather than try to change them. Communities
successful at sharing ensure that the professional
knowledge is adapted to fit the existing culture. Along
with this it is important to avoid community activities
that are perceived to compete with members’ commercial
interests.
 The greatest danger involved in sustaining a growing
HICD community is that members will lose energy and
drift into apathy, letting the leadership or coordinator
carry all the responsibility for community caretaking.
Getting respected thought leaders involved as soon as
possible, preferably from the start, is one of the key ways
to build energy in the community. Energy is built through
expanding community contact. Live contact is a key to
building a sense of commonality, enthusiasm, and trust.
Physical events are important to building the ongoing
energy of the community. Contact, including the social
connection and obligation that comes with it, builds sus-
tainable community success. Community energy is built
up by strengthening one-on-one relationships among
community members. This can be accomplished by an
active and passionate core group. Core group members
are not always world-leading experts on performance
improvement. What makes them effective is their heart-
felt caring about the profession and the community.
It must be easy to connect, contribute to, and access
the community. Ease of use has little to do with soft-
ware functionality. Websites should make it easy for
community members to connect with each other and
to contribute to and use information from the commu-
nity’s knowledge base, while being inexpensive and easy
to access. It is important to create real dialogue about
cutting-edge issues in community forums. Relationship
comes about through true discussion.
OPTIONS FOR CREATING A
COMMUNITY OF PRACTICE
There are a number of options for forming a community.
Often people automatically jump to the idea of a formal
association when considering this type of community.
In fact there are several options. They are described in
the following list, which names both the simpler and the
more complex (as well as more expensive) variants.
• Network of practitioners: an informal network of
consulting professionals who meet periodically to
trade professional and market developments
• International association chapter: a local chapter of
an international professional society with a perfor-
mance improvement focus (e.g., ISPI and ATD, among
others)
• Special interest group (SIG): a committee within an
existing general association such as a business cham-
ber within an existing broad membership base
• Institutional office: a coordinating mechanism with a
relevant GOR agency such as a public service bureau
or a university with a management program
• Independent association: creation of a new associa-
tion based on HPT or broader management consulting
Table 1 provides a brief analysis of the strengths and
weaknesses of these community forms.
CREATING A SUSTAINABLE COMMUNITY
OF PRACTICE FOR RWANDA
HICD/R has just started the third year of a five-year
program. During the early years, the project established
a formal framework for a community of practice and
provided members with numerous workshops, trainings,
and other learning opportunities. Included were paid
internships to participate in HICD assessments and to
implement performance solutions for HICD/R partner
institutions. Interns were selected through a competitive
process.
Several factors affect the potential for the HICD pro-
fessional community to provide sustainable performance-
based consulting services to the private and public
sectors. These are discussed in the following subsections.
Shallow Markets
Current demand for performance improvement ser-
vices is limited to projects and programs funded
by international donors, largely USAID. Although
the need for private- and public-sector performance
improvement service is clear, this has not translated
into market demand. Potential clients, long entrenched
in a traditional cycle of capacity needs assessments
and training, have yet to see the value in more holis-
tic performance improvement approaches that focus
on a wider array of root causes than skill and knowl-
edge gaps. This is exacerbated by a lack of visible and
compelling examples of HICD/R results that would
attract institutional leaders to the benefits of applied
performance technology.
Stagnant Market Sophistication
The GOR represents the largest portion of the market for
consulting assignments. However, government actors are
largely isolated from advancements and best practices in
their fields due to lack of resources, change resistance,
and poor incentives. Consultants might be able to bring
fresh perspectives to government, but they lack the
opportunity to demonstrate sophisticated approaches
and are further hindered by anti-consultant prejudices.
The GOR largely uses consultants to shore up inad-
equate government staffing by outsourcing narrow and
discrete tasks. Such tasks provide almost no opportunity
for consultants to influence government performance
Performance Improvement • Volume 53 • Number 8 • DOI: 10.1002/pfi 13
 TABLE 1 ANALYSIS OF HICD COMMUNITY OF PRACTICE ALTERNATIVES
OPTION PRO CON

Network of practitioners: An informal Low overhead Requires high personal commitment

network of consulting professionals Freedom of action Lack of structure and resources
meeting periodically
Flexible agenda No legal basis
Low risk Hard to sustain

International association chapter: Known brand Affiliation and bylaw requirements

A local chapter of an international Support and operations templates (structure) International dues
professional society focused on
Low budget requirements Ongoing volunteer energy
performance
Volunteer officers (revolving) Trust among members is important for
Easy to establish joint action

Relationship with USAID (in case of ISPI)

Special interest group (SIG): A commit- Known brand Requires existing core of membership
tee of an existing general association Established membership base HICD is side issue
with a broad membership base
Mix of internal and consultant members Low freedom of action
Excellent for marketing Board support may change
Focus may be diluted
Expensive dues

Institution office: A coordinating mech- Known brand Requires ongoing funding

anism with a relevant GOR agency Helpful for marketing Low priority focus on HICD
(such as NCBS) or a university with a
Coordinating staff Low freedom of action
management program
Bureaucracy constraints
May become a potential service
competitor

New association: A new association Freedom of action Registration and start-up expense
based on HICD/HPT or broader man- No historical baggage Facility and staffing cost
agement consulting
Focus of mission Large potential membership base needed
No name recognition
Threat of competition with members
Focus on fundraising

or to expand the government perspective or body of
knowledge. Consultant influence is further impeded by
government perceptions of consultants as self-promoting
professional scavengers of dubious skills.
Small Consultancy Base
There are fewer than 20 professional management con-
sultancy firms in Rwanda, though a plethora of freelance
consultants of varying degrees of expertise and compe-
tence populate the landscape. Only a few of the firms are
proficient with HICD methods. International consulting
firms, largely absent from the Rwandan marketplace,
generally engage international expert teams. High volatil-
ity in the supply for consulting assignment further limits
sector growth and consultant enrichment. Firms are
unable to employ and invest in consultants and must
instead rely largely on short-term, contracted consultants
and to reduced overhead and fixed salaries.
Low Level of Professional Cohesion
As mentioned, relatively few professional consulting
firms and a wide array of independent consultants
populate the consulting field. Competition to win con-
sulting assignments is intense, and this, in combina-
tion with restraints on opportunities and resources for
professional development, contributes to industry frag-
mentation and an inhibited sense of professional cama-
raderie and trust between consultants or consulting
firms. While a Rwandan Organization for Professional
Consultants (ROPC) has been formed to serve as a

14 www.ispi.org • DOI: 10.1002/pfi • SEPTEMBER 2014

unified voice for the consulting industry and to provide
training and services to professionalize services pro-
vided by consultants, it has yet to engage substantively
in the advocacy needed to change the perception of the
consulting industry.
DESIGN OF THE HICD/R COMPRAC
During the initial months of the project launch, all
these considerations surfaced. Given the newness of
the methodology, it was decided to take a phased-in
approach. Also, as the project had a 5-year life, there was
time to build slowly from strength to strength to ensure
sustainability. As Figure 6 illustrates, the first decision
step—agreement on the objectives of the COMPRAC—
was implicit in the HICD/R work scope.
The third and fourth steps of defining the features
of the COMPRAC, while adapting best practices to the
Rwandan context, is being implemented in four phases:
1. COMPRAC fully supported by project staff and re-
sources (30 months)
2. COMPRAC transition to international association
chapter fully supported (24 months)
3. Association chapter operating with limited support
(six months)
4. Chapter continues after completion of project inde-
pendently
FIGURE 6. HICD COMPRAC DESIGN
The first phase, which is just being completed, was
to identify a core group of interested professionals as a
start to the community. This was done by a communica-
tions campaign directed to the known consulting audi-
ence in Rwanda. More than 60 participants joined the
COMPRAC from the start, and they have become the
basis of initial activities.
The profile of the members (Figure 7) indicated a
mixed level of ability, although more than 60% had at
least 10 years of experience.
Many local consultants have experience in proj-
ect management, business development, institutional
capacity building, human resources management, pro-
curement, financial management, and business devel-
opment. Therefore, the project took a collaborative
approach that included knowledge transfer of HICD/
HPT methods, including training and coaching. In addi-
tion, selected partnering via internships or team mem-
bership with international consultants has been used to
broaden the local consultants’ knowledge in the area of
performance improvement. This was possible because
the project is supporting a number of institutions with
both assessments and performance solution interven-
tions. Therefore, the parallel approach was to develop the
consultants’ HICD/HPT competencies and to strengthen
their existing specialties while providing for ongoing
real-life opportunities to practice and use the tools with
expert feedback. In addition, a special effort of coaching
Performance Improvement • Volume 53 • Number 8 • DOI: 10.1002/pfi 15

FIGURE 7. COMPRAC MEMBER EXPERIENCE PROFILE
and orientation was provided to build a growing number
of Certified Performance Technologists.
LOOKING FORWARD TO A
SUSTAINABLE PROFESSIONAL
COMMUNITY
As elaborated in the preceding analysis, COMPRAC con-
sultants agree that in the longer term the development
of true market demand for HICD services is essential to
the sustainability of these practices. With this, support
for cohesion within the consulting industry must be part
of the solution. This was done using two approaches.
First, an 8-module training program was designed and
provided to all the COMPRAC members. Given the expe-
rience levels of the participants, these were facilitated as
workshops presenting new HPT methods and tools with
opportunities to discuss their application in the Rwandan
environment. The focus was on HPT tools such as the
behavior engineering model (Gilbert, 1978) and the
anatomy of performance (Rummler & Brache, 1990) as
applied through the USAID HICD handbook and mod-
els (USAID EGAT, 2011). In addition, other supporting
competencies were strengthened, such as managing a
consulting practice, preparing bid proposals, and con-
tracting legalities. While these were underway, selected
opportunities for ongoing project assessment and inter-
16 www.ispi.org • DOI: 10.1002/pfi • SEPTEMBER 2014
vention work were awarded to members in transparent
competitive assignments.
“The HICD project represents one of USAID’s core
priorities, which is to support public institutions to oper-
ate in an effective and inclusive fashion, and that civil
society is equipped to advocate effectively on behalf of
individuals and communities in Rwanda,” said Emily
Krunic, Democracy and Governance Office Director at
USAID/Rwanda. “This training and certification of local
organizations will make sure Rwanda has the skills to
strengthen its own organizations into the future.”
Thus, a recent HICD Exposition was held in February
2014 to showcase both performance successes and local
professional talent. Not only was awareness built, but a
guide was distributed that, in addition to describing the
approach, included a directory of the local consultants.
The strength of this event, attended by close to 200 people,
was that it was designed for the right profile of attendees—
that is, organization leaders who are potential customers
of these services. Media coverage was strong for the event.
At this time, planning is ongoing for the transition of
the fully supported community into a supported profes-
sional chapter. Given the alignment of HICD with the
mission of the International Society for Performance
Improvement (ISPI), and the adaptation by USAID for
the CPT credential to lead teams in this area, the choice
to found an ISPI chapter was a natural decision. There
is great interest by the Rwandan National Capacity
Building Secretariat as well as the Rwandan Organization
for Professional Consultants to support this transition.
Looking toward midpoint progress at this stage of devel-
opment, achievements include:
• Sixty consultants have completed training to integrate
HICD/HPT methods and tools into their specialties.
• Two hundred twenty professionals have been oriented
to the CPT requirements, 40 undertook a 10-session
application seminar based on the standards, approxi-
mately 10 applications are in the submission pipeline,
with three awarded.
• A kickoff event for a Rwandan ISPI chapter was held
at the end of May 2014 with more than 100 profession-
als attending. A steering committee of 10 volunteers
committed to complete the formulation of the chapter
so that elections for a board of directors can be held
within six months.
• During the May 2014 event, more than 100 new man-
agers and consultants had attended HICD overview
workshops with an expressed interest in joining the
COMPRAC or pursuing their CPT. Many are senior
managers from both line government ministries as

Rwanda is on track to be
a leader in HICD/HPT
practices in Africa and will
quickly become a leading
nation in the numbers
of CPT-credentialed
professionals over the next
few years.
well as groups such as the police, defense department,
and independent statutory agencies. There is a contin-
gent of nonprofit managers involved as well.
• In parallel with the project’s support for improving
performance for six local nonprofits, local consultants
are awarded paid assignment on an ongoing basis to
assist assessment teams or to provide specialized tech-
nical interventions alongside international experts.
• The Rwandan Organization of Professional Consultants
reports increasing demand for HICD services based
on the early 2014 Expo. Several projects have already
been initiated that involved hiring services of the
COMPRAC members.
Surely, the building of market awareness and HICD
sustainability will come through many years of continu-
ing service promotion and professional improvement by
the HICD service providers themselves. However, at the
midpoint of this effort, interest is growing quickly, and
there are continual inquiries of both internal managers
and external consultants to join the community. Rwanda
is on track to be a leader in HICD/HPT practices in
Africa and will quickly become a leading nation in the
numbers of CPT-credentialed professionals over the next
few years.
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STEVEN J. KELLY, CPT, has 35 years of diversified experience as a senior team leader in performance
improvement, capacity development, program evaluation, project management, and workforce devel-
opment. He has conducted numerous field assessments, defined evaluation strategies, and delivered
technical assistance in 25 countries in such sectors as regional and federal government reform, higher
education, SME development, finance and economics, environment, conflict resolution, and agriculture.
He has led numerous development projects funded by USAID, the World Bank, EU Leonardo, and the
Peace Corps. He has an MA in human relations/management and has previously served two terms as
a director on the board of the International Society for Performance Improvement (ISPI). He may be
reached at Steven.Kelly.KNO@gmail.com

JOHN PALMUCCI, CPT, is a human performance technology specialist with 20 years of experience
implementing USAID-funded institutional strengthening projects in Rwanda, Iraq, South Sudan, Egypt,
and Armenia. With a specific focus on performance improvement in post-conflict settings, he currently
leads the Human and Institutional Capacity Development Project in Rwanda to improve the performance
of government and civil society organizations and to institutionalize modern performance improvement
approaches. He has an MBA from Northeastern University. He may be reached at J@palmucci.co

18 www.ispi.org • DOI: 10.1002/pfi • SEPTEMBER 2014