MANAGEMENT AND FUNCTIONAL REVIEW
MINISTRY OF TRANSPORT AND AVIATION
Public Sector Reform Unit
(Draft 1)

Contents

GLOSSARY OF ABBREVIATIONS AND ACRONYMS

EXECUTIVE SUMMARY

SUMMARY OF RECOMMENDATIONS

MINISTRY OF TRANSPORT AND AVIATION

Statutory Framework

Mandate

Vision Statement

Mission Statement

Projects

Organizational Structure

National Transport Coordinating Committee (NTCC)

Working Arrangements

Communication with the Public

Records Management

Human Resource Management

Training

Material Resources

CIVIL AVIATION AUTHORITY

Statutory Framework

Mission

Functions and Mandate

Structures

Staffing

Training

Scheme of Service

Oversight Responsibility

Low Budget Allocation and Lack of Funding

Procurement

Internal Audit

Material Resources and Accommodation

METEREOLOGICAL DEPARTMENT

Statutory Framework

Functions and Mandate

Structures

Staffing

Training

Scheme of Service

Oversight Responsibility

Inadequate Budget Allocation

Procurement

Material Resources and Accommodation

SIERRA LEONE MARITIME DEPARTMENT

Statutory Framework

Vision Statement

Mission Statement

Functions and mandate

Structure

Working Arrangements

Management Systems

Projects

Material Resources

Accommodation

Communication with stakeholders

SIERRA LEONE ROAD TRANSPORT AUTHORITY

Statutory Framework

Mission Statement

Vision Statement

Functions and Mandate

Devolution

Structure

Working Arrangements

Material Resources

Accommodation

Communication with stakeholders

APPENDIX 1: CURRENT STRUCTURE OF THE MINISTRY OF TRANSPORT AND AVIATION

APPENDIX 1: PROPOSED STRUCTURE FOR MINISTRY OF TRANSPORT AND AVIATION

APPENDIX 2: TERMS OF REFERENCE FOR POLICY AND PLANNING UNIT

APPENDIX 3: CURRENT STAFF LIST OF MTA

APPENDIX 5: RETIREMENT PROFILE 2010-2014

APPENDIX 6: PROPOSED ORGANIZATIONAL STRUCTURE FOR CIVIL AVIATION AUTHORITY

APPENDIX 7: PROPOSED ORGANIZATIONAL STRUCTURE FOR METEREOLOGICAL DEPARTMENT

APPENDIX 8: CURRENT STRUCTURE OF SIERRA LEONE MARITIME DEPARTMENT

APPENDIX 9: PROPOSED STRUCTURE FOR SIERRA LEONE MARITIME DEPARTMENT

APPENDIX 10: CURRENT STRUCTURE FOR THE SIERRA LEONE ROAD TRANSPORT AUTHORITY

GLOSSARY OF ABBREVIATIONS AND ACRONYMS

DFID - Department of International Development

GBAA-Government Budget and Accountability Act of 2005

GoSL – Government of Sierra Leone

HRMO - Human Resource Management Office

ICAO-International Civil Aviation Organization

ICT-Information and Communication Technology

MD-Meteorological Department

MDAs -Ministries, Departments and Agencies

MFR-Management and Functional Reviews

MTA-Ministry of Transport and Aviation

MTEF-Medium Term Expenditure Framework

NASSIT-National Social Security and Insurance Trust

NCP- National Commission for Privatization

PRSP-Poverty Reduction Strategy Paper

PS-Permanent Secretary

PSRU-Public Sector Reform Unit

RMT-Records Management Team

SL -Sierra Leone

SLAA-Sierra Leone Airports Authority

SLCAA-Sierra Leone Civil Aviation Authority

SLMA-Sierra Leone Maritime Administration

SLPA-Sierra Leone Ports Authority

SLRTA-Sierra Leone Roads Transport Authority

SLRTC-Sierra Leone Road Transport Corporation

EXECUTIVE SUMMARY

  1. As part of the Government of Sierra Leone’s (GoSL) commitment to strengthening the performance of public institutions for efficient service delivery, a Public Sector Reform Programme has been developed with help from development partners.
  2. The primary objectives of the Reform programme include the restructuring and capacitating of Ministries. The process includes conducting Management and Functional Reviews, which examine the structures, mission, vision, mandate, and processes used in each Ministry and make recommendations on the way forward.
  3. The Ministry of Transport and Aviation has the important mandate of ensuring safe and reliable transport systems in Sierra Leone. This mandate covers all the modes of transport including road, air, and sea.
  4. Over the years specific agencies have been set up to manage each of these modes of transport, including the Sierra Leone Airport Authority, Sierra Leone Maritime Administration, and the Sierra Leone Road Transport Corporation.
  5. The oversight control of the Ministry over these agencies has been further affected by the National Commission for Privatization which was established in 2002 to manage certain public enterprises marked for privatization.
  6. Currently, the Ministry has an oversight authority over seven agencies inlcuidng Sierra Leone Ports Authority(SLPA), Sierra Leone Airports Authority(SLAA), Sierra Leone Roads Transport Corporation(SLRTC), Sierra Leone Maritime Administration(SLMA), Sierra Leone Roads Transport Authority(SLRTA), Meteorological Department (MD), and Sierra Leone Civil Aviation Authority(SLCAA).
  1. This supervision is shared with the NCP with regards to the SLRTC, SLPA, and SLAA, all of which are have been earmarked for possible privatization.
  1. The Ministry is peculiar in that it only has administrative staff who supervise the activities in the sector. It does not have a technical wing like other Ministries. In effect, the semi-autonomous agencies it supervises perform the technical functions for the sector.
  1. The Management and Functional Review of the Ministry process therefore included a review of these agencies in order to gain a proper understanding of the relationships. However, this review was limited to four agencies out of the seven. These include the Civil Aviation Authority, Maritime Administration, Road Transport Authority, and the Meteorological Department. The remaining three agencies are large and complex institutions in their own right and, as such, merit individual reviews. These will be conducted as soon as possible.

SUMMARY OF RECOMMENDATIONS

MINISTRY OF TRANSPORT AND AVIATION

  1. That the Ministry be prioritized in national reform initiatives, especially with regards to training in strategic planning and policy development and analysis, and resource provision.
  2. That the Ministry develops a Values Statement exemplifying positive guiding principles.
  3. Implementation of an organizational structure that incorporates the missing technical functions
  4. The establishment of a permanent Steering Committee, meeting several times a year, that will serve the following functions;
  • Provide a regular forum for formal consultation between the MTA and all government and non-governmental agencies in the transport sector
  • Provide a regular forum for formal consultation between the NCP and agencies in the transport sector
  • Recommend sectoral priorities to be addressed by the Cabinet
  • Preparation and endorsement of sector strategies and work plans
  1. That a Budget Committee is formed and that this Committee meets at least twice in each quarter to review the finances.
  2. That the Accountant-General’s Department deploy an Accountant and an Accounting Assistant to the Ministry.
  3. That the Ministry requests an Internal Auditor from the Audit Services.
  4. Establishment of a Procurement Unit comprising two qualified Procurement Officers and three assistants.
  5. That the Ministry seeks the assistance of the PSRU in developing a Service Charter.
  6. That the Ministry is provided with an ICT officer by the HRMO who will be responsible for updating the website which should include a section for queries and concerns.
  7. That the HRMO deploys a Records officer to the Ministry, and that one of the first tasks is the creation of a library.
  8. That the vacancies resulting from this review are filled as quickly as possible by the HRMO
  9. That all staff due for statutory retirement are recommended for such to the HRMO
  10. That the Ministry retains only three (3) Third Grade clerks
  11. That the Ministry retains only two messengers.
  12. That the Ministry and HRMO develop a Scheme of Service informed by the TORs developed for the existing and new positions
  13. That the Ministry develops a Training Plan in line with the National Training Policy
  14. That staff have access to Internet services

CIVIL AVIATION

  1. Urgent action should be taken by the Government to appoint a substantive management structure and a Board of Directors with oversight responsibility over the SLCAA.
  2. Recruitment of additional technical / professional staff
  3. Development of a Human Resource Development Plan to meet the training requirements of the Authority.
  4. Review the existing Scheme of Service to ensure that all professional, technical and clerical staff are provided with a written job description.
  5. The Authority should establish appropriate institutional frameworks to ensure its regulatory, supervisory and policy management and oversight responsibilities it has over the Sierra Leone Airport Authority, as well as aviation-related Training Institutions.
  6. Government should provide adequate funding for the Authority until such a time when the Authority will generate its own resources.
  7. That the Authority should continue to implement the procurement rules as prescribed in the Procurement Act and the Procurement Committee shouldcontinue to function even after the initial discussions in the budget allocation
  8. That the Authority liaises with the Audit Services on acquiring an Internal Auditor according to the generic terms of reference developed for the post of Internal Auditor in MDAs.
  9. That Government provides adequate funding to enable the Authority to purchase vital equipment for its operations and ensure that in the near future the Authority secure a permanent accommodation.

METEOROLOGICAL DEPARTMENT

  1. That the process of transforming the Department into an Agency should be fast-tracked to ensure efficiency and productivity in meteorological services across the country.
  2. The immediate recruitment of technical and professional staff in the Department.
  3. A human resources development plan for the Meteorological Department, which will identify and plan for the recruitment and training requirements of the Department.
  4. That the Schemes of Service of the Department are reviewed in line with the proposed structure.
  5. That Government should provide adequate funding for the Department to allow it operate as a Meteorological Department
  6. That the Department should continue to implement the procurement rules as prescribed in the Procurement Act and the procurement committee should continue to function even after the initial discussions in the budget allocation.
  7. That the Government provides adequate and conducive office accommodation for the Department.

MARITIME ADMINISTRATION

  1. That a Policy on Maritime Administration for Sierra Leone be produced, and that, based on that policy, the Board seek an amendment of the Maritime Administration Act of 2000.
  2. A change of name from Director of Admin/Finance to ‘Director of Human Resources, Administration and Finance.
  3. The following units will fall within this Directorate: -

Finance

Logistics and Supply/ Planning

Human Resource Management

  1. That an Internal Audit Unit be established that will report periodically to the Board.
  2. The development of a Human Resource Manual that provides guidelines on Manpower planning, training, and conditions of service.
  3. Effective records management and library system to be developed.
  4. That staff meetings should take place at least once a month so that the staff members become aware of the activities and achievements of the organization and staff responsibilities
  5. That SLMA establishes a Change Management Team that meets regularly to discuss implementation and progress of the restructuring process
  6. That SLMA should develop a training plan and conduct a training needs assessment
  7. The establishment and recruitment of an Information and Communications Officer.
  8. That the SLMA send copies of its quarterly and annual reports to the Ministry of Transport and Aviation, and keep copies in the library.
  9. That all minutes of Board Meetings are collated and kept in the library

SIERRA LEONE ROAD TRANSPORT AUTHORITY

  1. The development of a human resource development plan; this will include the following steps:
  • Staff rationalization following a Job evaluation.
  • Development of Schemes of Service of all Posts
  • Absorption of qualified staff to positions of their competencies
  • Development of Training Plans
  • Periodic training of all staff at all levels
  1. That the Board places a ban on the importation of derelict and non-conforming right-hand vehicles
  2. That the Authority approach partners in Government in securing a large piece of land to use as an Impound Lot.
  3. That the Authority develop Road Safety Campaigns targeting both commercial drivers, especially motorbike riders, as well as transport users.

MINISTRY OF TRANSPORT AND AVIATION

Statutory Framework

The Ministry of Transport and Aviation is responsible for ensuring safe and reliable transport systems in Sierra Leone.Even though various additional mandates have been added over the past decade, this primary role of the institution remains unchanged. In 1995, there was a reorganization of the Transport sector administration, the shift being towards reducing the influence of Government whilst at the same time enhancing participation of the private sector. The Ministry was made to exercise oversight over the variousautonomous and semi autonomous parastatals and departments established in the sector.

  • The Sierra Leone Ports Authority(SLPA)
  • The Sierra Leone Airports Authority(SLAA)
  • The Sierra Leone Roads Transport Corporation(SLRTC)
  • The Sierra Leone Maritime Administration(SLMA)
  • The Sierra Leone Roads Transport Authority(SLRTA)
  • The Meteorological Department (MD)
  • The Sierra Leone Civil Aviation Authority(SLCAA)

In 2002 the name of the Ministry was changed from the Ministry of Transport and Communications to its current one of Ministry of Transport and Aviation, effectively establishing its authority over the three main transport modes, road, marine and air transportation. While all of these modes are regulated by statutory bodies, the Ministry maintains oversight over policy development and implementation.

In 2002, the National Commission for Privatization was established by an Act of Parliament with the mandate for the privatization of public enterprises. The NCP Act 2002 lists the functions of the Commission to include serving as “the policy and decision-making body with regard to the divestiture and reform of public enterprises, transfer the management of all public enterprises to the Commission, and remove the interference in the management of public enterprises from line Ministries thereby ensuring transparency, corporate governance and avoidance of conflict of interest in the affairs of the public enterprise.”

The NCP Act 2002 established joint supervision by both the NCP and the Ministry of institutions that had been previously under the sole control of the Ministry, including the Sierra Leone Road Transport Corporation, the Sierra Leone Airports Authority, and the Sierra Leone Ports Authority. Nevertheless, the Ministry represents all of these agencies at the Parliamentary and Cabinet level.

Mandate

The Ministry is responsible for ensuringefficient, sustainable and affordable transportation networks to facilitate economic development,including access of the rural farming population and urban poor to market centres.

Strategic policies to achieve this mandate include;

  1. coordinating and integrating a consistent framework to monitor the transport subsectors and planning prepared by sector agencies and authorities;
  2. monitoring the economic, financial, social and environmental performance in the sector, and
  3. monitoring the implementation of projects in the sector.

One of the core activities included in this mandate is the procurement and disbursement of official vehicles for Government MDAs.

The key policy directives for the three key modes of transportation include;

  1. ensuring physical access to services, markets, and revenue-generating opportunities
  2. lowering transport costs to ensure affordability of transport
  3. increasing efficiency in the delivery of transport services
  4. promote safety in the roads, air and marine sectors
  5. provide daily weather information for aviation, marine and agricultural sectors

Notwithstanding the importance of the role of the MTA in national development, the Ministry seems to have been relegated to a second class status, and is not regarded as critical. The relevance of the work of the Ministry to all other components of the national development agenda, including trade, agriculture, mining, and tourism, is made very clear in the PRSP II and, as such, there is a need to raise the profile of the Ministry to a vibrant policymaking and regulatory institution of government.

The mandate of the Ministry is in place and is expansive enough to achieve the goal of developing efficient transport networks that can facilitate the movement of goods and people within the country and those leaving the country. What are lacking are the strategies to ensure effective execution of this mandate. The oversight mandate is not properly executed and there is very little monitoring of the agencies. This is certainly regrettable given the deplorable state of transportation networks in the country, and the priority placed on infrastructure development within the national development agenda.

Solutions to this unfortunate state of affairs will have to come both from the Ministry making a concerted to improve its productivity and profile, and also from the external governance environment, through acknowledgment of its pivotal role in development and therefore providing more support to the Ministry. It is therefore recommended that the Ministry be prioritized in national reform initiatives, especially with regards to training in strategic planning and policy development and analysis, and resource provision.

Vision Statement

The Vision statement of the Ministry reads, “To have a modern and efficient transportation system that can support the development of Sierra Leone.”

Mission Statement

The Mission statement reads, “To develop policies and provide guidelines and effective and efficient implementation mechanisms, which will ensure safe, reliable, affordable and sustainable transport and Aviation systems throughout Sierra Leone”

Both the vision and mission statements are acceptable, but we recommend that the Ministry also develop a Values Statement exemplifying positive guiding principles. Some suggestions include honesty/integrity, dedication, innovation, professionalism, teamwork, customer service, perseverance, and empowerment.

Projects

The Ministry supervises two major Projects, and hosts their implementation units. The Infrastructure Development Project is a World Bank -funded project for road development. These include major highways such as the Bo-Kenema Highway and the Makeni-Matotoka Highway, feeder roads, runway at Lungi International Airport, as well as infrastructural work at the SLPA. The second project is the ICF-funded Airport Transfer Project, providing infrastructural development at the Lungi Airport, as well building jetties and a helipad.