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Elmore notes that the dilemma facing most microfinance systems is the implementation strategy (Elmore 1979-1980 601-616). He cites other research arguing that implementation problems should be considered when policies are made. “The argument is often made in an accusatory way as if policymakers were somehow deficient for not routinely and systematically thinking about implementation problems. Yet when one looks to the implementation literature for guidance there is not much to be found” (Elmore 1979-1980 60). Elmore remarks that implementation -research is often long on description and short on prescription. Backward mapping strategy is intended to spend more time on analyzing intended and unintended consequences. Backward mapping policymaking approach of microfinance systems’ implementation is not a guarantee for successful outcomes but can eliminate some of the bureaucratic bottlenecks of top-down project implementation. Problems such as local government interventions in the Punjab Pakistan microfinance project could be reduced to a minimum if the backward mapping policymaking approach was used.
Government interventions in microfinance systems result from ill-defined roles which should be part of the backward-mapping description. Intervention leads to conflicts. Elmore describes the tensions by observing that
The notion that policymakers exercise—or ought to exercise—some kind of direct and determinant control over policy implementation might be called the noble lie of conventional public administration and policy analysis. Administrators legitimate their discretionary decisions by saying that their authority is delegated and controlled by elected and appointed policymakers. Policy analysts justify their existence by arguing that informed rational choices by policymakers are necessary to guide and control administrators. Neither administrators nor policy analysts are very comfortable with the possibility that most of what happens in the implementation process cannot be explained by the intentions and directions of policymakers. (Elmore 1979-1980 60)
The Punjab microfinance system in Pakistan exposed some of the critical questions that can adversely impact most microfinance systems worldwide. Researchers of microfinance systems agree that the roles of local governments in microfinance should be limited. Saleem wrote about the Grameen Foundation and the Women World Banking who expressed “grave concern over growing crisis in the microfinance sector in Punjab following inappropriate intervention of certain political section” (Saleem 2009).
Elmore advises that “If political feasibility is a problem one can describe the major political actors and the agreements necessary among them at each level” (Elmore 1979-1980 60). The Punjab Grameen Foundation and Women World Bank welcomed Pakistan assistance in funding projects but became alarmed about the direct role of government interventions. Saleem noted that Alex Count President of the Grameen Foundation and Mary Ellen President of Women World Banking expressed their view to the Pakistani Government as they wrote “We are concerned that the microfinance sector in Pakistan is under threat. The intervention of some local elected representatives has given rise to a crisis a situation which has damaged the reputation of the microfinance sector in Pakistan and could lead to a major crisis with national as well as international implications” (Saleem 2009). Microfinance should be designed based on sound policymaking to withstand local government interventions.
Elmore notes that the backward mapping policymaking approach
begins not at the top of the implementation process but at the last possible stage the point at which administrative actions intersect private choices. Backward mapping begins not with a statement of intent but with a statement of the specific behavior at the lowest level of the implementation process that generates the need for a policy (Elmore 1979-1980 604).
Given that poverty is the root cause of many socioeconomic political and cultural problems backward mapping strategy provides a holistic solution’s approach that takes into account the legal system sociology macroeconomics and polity of the region. In the absence of modern democratic structures real change cannot take place through the same unreliable government officers for lack of trust transparency and accountability. Implementers of the Punjab project wanted the local government to serve as a partner during project implementation and to provide funding for the project. Governments shouldn’t act as managers of financial managers since this would take away empowerment and ownership attributes from the community. In Punjab for example the Kashf project implemented by Grameen Foundation (GF) and the Women World Banking (WWB) received commercial funding from banks in Pakistan (Saleem 2009) but was at the point of default. Saleem noted that if they were unable to meet their debt obligations the commercial banking sector would see a significant negative impact and May stop supporting microfinance (Saleem 2009).
The Punjab project illuminates some of the challenges that affect most microfinance systems including a lack of legal systems to provide justice and transparency and to hold corrupt government officers accountable. Elmore notes that “There are at least two clearly distinguishable approaches to implementation analysis – forward mapping and backward mapping” (Elmore 1979-1980 60). The top-down process is forward mapping which students of implementation repeatedly argue that implementation problems should be considered when policies are implemented (Elmore 1979-1980). Many projects require backward-mapping approaches because description takes more time than implementation. Both approaches have advantages and disadvantages. Each serves a purpose and if well executed should provide expected outcomes. The problem is more about what Elmore defines as long on requirements and short on prescriptions (Elmore 1979-1980).

Process or methodology might help in policy implementation. However each problem is unique and has its own set of consequences and outcomes. Policymaking is an ongoing process for building on past work. Involving those at the grassroots level to determine project implementation is critical to ensure accountability. Levit and Verchick noted that Feminist legal theory started by “a series of questions designed to uncover male biases hidden beneath supposedly ‘neutral’ laws” (Levit and Verchick 2006 45). The approach led to building a broad coalition to reduces the negative influence of government. Backward mapping is designed to take the same approach.

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