Your counterpart has requested your advice on how to increase the efficiency of his ministry. Before you put forward your proposals, you:
Assume that there is no capacity within your host institution, that is why you have been brought in in the first place.
Look for existing capacity in different shapes and forms. The system has been working, despite its various problems.
Request your sending government/ organisation for a series of trainings to build capacity of ministry personnel.
Consult with other partners and colleagues to seek support to rebuild the system. It would be better to start anew.