PUBLIC SERVICE REFORM UNIT
GOVERNANCE REFORM SECRETARIAT
REPORT ON THE PUBLIC SERVICE REFORM
PROGRAMME PHASE 1 FOR THE PERIOD
NOVEMBER 2002 TO APRIL 2003
8 WESLEY STREET
FREETOWN
SIERRA LEONEMAY 2003
REPORT ON THE PUBLIC SERVICE REFORM PROGRAMME
PHASE 1 FOR THE PERIOD NOVEMBER 2002 TO APRIL 2003
BACKGROUND
Under the Terms of Reference of the Coordinator of Public Service Reform, it is stipulated that in the second year of his appointment, he will report to DFID (West and North Africa Division (WNAD) and its Senior Governance Adviser) on a six-monthly basis in writing, covering a forward plan of work activities, progress and problems. This is the fourth report covering the period November 2002 to April 2003.
1.0WORK PROGRAMME
The work programme for the period April 2003 to October 2003 is attached as Annex 1 of this report.
2.1 MANAGEMENT AND FUNCTIONAL REVIEWS
The four reviews that were planned in the Ministries of Education, Health, Agriculture and Local Government have been completed by a joint team of DFID and Sierra Leonean Consultants and this report will deal separately with developments in each review, action taken so far and action pending in each case. In November 2002, the responsibility for Forestry which was hitherto under the portfolio of Lands, Forestry, Country Planning and the Environment was reassigned to the Ministry of Agriculture and Food Security. The announcement was made during the last week of the Consultants’ field work in the Ministry of Agriculture and it was therefore too late for the Forestry sub-sector to be included within the scope of the review. However, on the written request of the Permanent Secretary in that Ministry for the Forestry Division to be included in the review, it was agreed that the Consultants would undertake the assignment so as to complete the overall review of the restructured Ministry. This assignment has been completed and the relevant review report will be submitted to the Steering Committee on Good Governance for discussion.
2.1.1MINISTRY OF EDUCATION, SCIENCE AND TECHNOLOGY
Following consideration of the review report by the Steering Committee on Good Governance, the report incorporating the recommendations of the Consultants, the Steering Committee’s position on the recommendations, the Ministry’s Implementation Plan, Implementation Mechanisms and Guidance Notes for Ministry Working Groups in the completion of the Implementation Control Sheet were all forwarded by the Ministry of Presidential Affairs to Cabinet for consideration and approval. By Conclusion CP2(2003)17 of 8th January 2003, Cabinet noted inter alia the management lapses in the Ministry of Education, Science and Technology and agreed that the Minister of that Ministry should endeavour to implement the recommendations contained in the review report. Cabinet also agreed that the Implementation Plan should be studied further if the same recommendations were made following functional reviews of other key Ministries like Health and Sanitation, Agriculture, Forestry and Food Security which have similar structures as the Ministry of Education Science and Technology. The implementation of review recommendations is dealt with elsewhere in this report.
2.1.2MINISTRY OF HEALTH AND SANITATION
As in the case of the first review in the Ministry of Education, the report submitted by the Consultants at the end of September 2002 was circulated on 1st October 2002 to DFID, the Steering Committee on Good Governance, the Minister of Health and the two Directors-General in the Ministry, and the Accountant General. The report was discussed at a meeting of the Steering Committee held at State House on 7th November 2002, under the chairmanship of the Minister of Presidential Affairs which was attended by the Minister of Health and the two Directors General as co-opted members. Thereafter, the report, a table reflecting the Committee’s position vis-a-vis the Consultants’ recommendations and all other relevant attachments dealing with implementation were forwarded to Cabinet for consideration and approval. By Conclusion CP5(2003)10 of 26th February 2003, Cabinet noted the report and agreed that the Ministers of Health and Presidential Affairs should be reporting fortnightly to Cabinet on the progress made in the implementation of the recommendations. The current status of implementation is explained elsewhere in this report.
2.1.3 MINISTRY OF AGRICULTURE AND FOOD SECURITY
The Consultants submitted their report to the Coordinator in November 2002 and copies were accordingly circulated to DFID, members of the Steering Committee, key Ministry of Agriculture officials and the Accountant General. A meeting of the Steering Committee was convened under the chairmanship of the Minister of Presidential Affairs on 16th January 2003 to discuss the report. In the absence of the Minister of Agriculture who was out of the country, he was represented by the Deputy Minister ably supported by the Permanent Secretary and Director-General. The Committee’s recommendations together with those contained in the report were recorded in tabular form and forwarded with other relevant documentation to Cabinet for consideration and approval. However, discussions which were scheduled to be held on 9th April 2003 were shelved for two weeks pending the revisiting of particular issues by the substantive Minister of Agriculture. On Thursday 24th April 2003, the Steering Committee was reconvened to discuss the specific issues raised by the Minister of Agriculture dealing with the proposed status of the Horticulture Unit and the National Documentation Centre (NADOC). At that meeting, the Committee revisited its earlier position and agreed that the Horticulture Unit should be strengthened and placed under the supervision of the National Extension Coordinator. In the case of NADOC, it was agreed that it should be under the office of the Director-General of Agriculture. With these two amendments, the report was resubmitted to Cabinet for consideration and approval. By Conclusion CP 13(2003)9 of 30th April 2003, Cabinet approved inter alia the recommendations in the review report as amended and endorsed by the Steering Committee on Good Governance.
2.1.4 MINISTRY OF LOCAL GOVERNMENT AND COMMUNITY
DEVELOPMENT
On completion of the review, the Consultants submitted their report to the Coordinator in February 2003, and copies were accordingly circulated to DFID, members of the Steering Committee, key Ministry of Local Government officials and the Accountant General. Due to the involvement of the Minister of Local Government and other officials in the nationwide consultations on the proposed local government system as well as other district recovery activities, the meeting of the Steering Committee was postponed several times. The report was eventually discussed at a meeting of the Steering Committee held at State House on 24th April 2003 under the chairmanship of the Minister of Presidential Affairs. The meeting was attended by the Minister of Local Government, his Permanent Secretary, Deputy Director of Local Government and Acting Director of Community Development as coopted members. The report was discussed in detail and accepted with a few amendments made on the Consultants’ recommendations. The Ministry of Local Government has been requested to draw up the Implementation Plan listing the changes to be made within the Ministry, expected results, financial implications, the target date for completion and whether amendments to legislation are necessary. Thereafter, the report submitted by the Consultants incorporating their recommendations, the Steering Committee’s position and the Ministry’s Implementation Plan, will all be forwarded to Cabinet for consideration and approval.
2.1.5IMPLEMENTATION ARRANGEMENTS
Concerning the implementation of the recommendations contained in the initial four reviews, the position of DFID is that there should be demonstrable evidence that progress is being made and that there is commitment to reform that will deliver positive benefits within a reasonable timeframe. This will provide justifiable reason and the best argument for the launching of the larger Phase 2 involving a complete series of management reviews in the remaining Ministries.
In order to provide limited additional support to the Public Service Unit and assist the Ministers and senior officials of the pilot Ministries to implement the recommendations of the management and functional reviews, DFID issued a directive for the two local consultants (Messrs Williams and Kandeh) who had worked on the reviews to be re-engaged on the same terms and conditions for a period of three months (April to June 2003). They will be supported with limited inputs from the three DFID Consultants (Messrs Bastin, Edmond and Marshall) who worked on those reviews. The DFID Consultants will provide additional specialist support as required which will be limited to 10 days per month. During this assignment they will develop a system of benchmarks to help guide and measure the implementation process and lay solid foundations for change.
With reference to the Government of Sierra Leone’s commitment to reform and its willingness to implement reforms in the civil service, the Cabinet has provided ample evidence to demonstrate this through its recent directives already mentioned in this report. Indeed, status reports on the implementation process in the Ministries of Education and Health have already been prepared for submission to the Cabinet. The physical presence of the two local consultants in the two Ministries has actually had a positive impact on the implementation process. Their presence has the merit of galvanising officials into action moreso when they realise that the Ministry’s performance is being monitored and feedback transmitted to Cabinet. The first set of progress reports submitted by the Consultants have already been forwarded to the Ministry of Presidential Affairs and the Oversight and Monitoring Unit in the Cabinet Secretariat. Attention is drawn to Annex 2, which gives in tabular form the status of actions taken so far on the initial four reviews. It should be mentioned that attitudinal change is required on the part of officials in the Ministries to enable them take ownership of the reform programmes and for them to demonstrate more zeal and enthusiasm in the implementation process. It is hoped that following the preparation of a revised statement of objectives for each organisation unit in the new structure, setting out its functions and management structure, there will be more clarity of roles and more awareness by officials of how they should feature in the implementation process.
2.1.6CONSULTANCIES
Contracts were signed on 26th March 2003 with Messrs L.O. Williams and A.H. Kandeh on the same terms and conditions contained in their previous contracts, for a duration of three months (April to June 2003).
Mr Hugh Marshall was in Freetown on 22nd April to 5th May 2003. During his visit he worked with the two local consultants in the areas already mentioned in this report and also in finalising the Forestry review report.
2.1.7ISSUES AND PROBLEMS
While trying to measure success in the implementation of reform measures after the initial four reviews, it is necessary to start planning for the main review involving eighteen other Ministries. If it is intended to look at a further cluster of Ministries in the next phase, we should now try to identify those that should be given priority. Due to the importance attached to public sector financial management the Ministries of Finance and Development should be top on the list. Other possible candidates are Foreign Affairs, Defence, Internal Affairs, Mineral Resources, Lands and Works. It has been agreed that since this would be a larger programme it should be put out to competitive tender. The competitive bidding process requires some length of time and we should take that into consideration if we want this second phase of management and functional reviews to commence in 2003.
2.2REVIEW OF CENTRAL POLICY MAKING AND COORDINATION MACHINERY IN GOVERNMENT OF SIERRA LEONE
At a meeting with H.E. the President on 11th April 2003, he raised the matter concerning DFID’s proposed review and strengthening of the Office of the President. The Coordinator explained that DFID had actually allocated funds for the review but that the matter had been put on hold while awaiting the Task Force which was looking at the restructuring of that office to complete its work and submit its report. This was to avoid any duplication of efforts by a DFID review team. It was agreed that the Secretary to the President and the Coordinator would work together on DFID’s support to the Office of the President.
The Task Force has completed its work and submitted its report and a copy was made available to the Coordinator in the first week of May 2003.
In subsequent discussions with the Secretary to the President he intimated that the report was being refined taking into consideration the strengthened roles of the Vice President’s Office and the Cabinet Secretariat. He explained that while action is presently being undertaken on the consolidation of staff in the office of the President, there is now an urgent need for technical assistance to computerise and manage the data base in that office. There is also the need to provide some equipment support to strengthen that office.
As stated in the Coordinator’s last report, it may be of great value if other donors who have been supporting the Office of the President i.e. the World Bank and UNDP could together with DFID hold consultations geared towards harmonising their proposed individual interventions and preparing a joint action plan for reform. Meanwhile, it is the Coordinator’s considered view that following the review of the Office of the President by the local Task Force, it may not be necessary to have another review team from DFID to handle the same task. The amount of £42,600 earlier approved for that purpose could be utilised for technical assistance and equipment support after consultations with the Secretary to the President.
2.3ESTABLISHMENT OF A MANAGEMENT SERVICES UNIT IN THE ESTABLISHMENT SECRETARY’S OFFICE
The Project Memorandum and Framework for the Governance Reform Secretariat Programme (GRSP) makes provision for the conversion of the Establishment Secretary’s Office into a modern Personnel Management Office (PMO). The GRSP includes a programme of diagnostic studies in government Ministries, four of which have already been completed using the services of DFID and local consultants. An important objective of this initial work programme is to develop a small management services team based initially in the Governance Reform Secretariat and subsequently in the PMO. Membership may be a combination of local consultants or civil servants. The merit in having this team is that capacity will be available to carry on and extend the diagnostic analysis and reform programme throughout the central government and later on to the elected local government system. In the Coordinator’s last report he advised that we should start looking at the possible options for setting up a Management Services Unit (MSU) within the PMO that will undertake the task of continuous job inspections and job evaluations reviewing schemes of service, conducting management reviews and generally promoting efficiency in Ministries and Departments. One possible option is to form the nucleus of the MSU by identifying suitable candidates with the appropriate background and experience from within the service and then utilise the services of the two local consultants (who worked on the four pilot management and functional reviews) to develop the capacity for such a task. This capacity would then be further developed within the framework of the PMO when it is actually created. This option should be given consideration as we move into GRSP Phase 2 as it will provide some continuity to the work that is presently being done on the implementation and follow-up of the recommendations contained in the reports of the initial reviews. This option also has the merit of kick starting the process of transforming the Establishment Secretary’s Office into an effective PMO.
2.4WEEKEND SEMINARS FOR MIDDLE AND SENIOR LEVEL CIVIL SERVANTS
The sixth seminar was held on Saturday 9th November 2002 as follows:
Morning Session:The impact of the new information technology in managing the public service.
Resource Person:Dr Armand Thomas, Dean of the Faculty of Social Studies and Law, FourahBayCollege, University of Sierra Leone.
Afternoon Session:Public and private sector partnership in governance.
Resource Person:Mrs R. Gobio-Lamin Head, Private Sector Development Unit, International Finance Department, Bank of Sierra Leone
The seventh seminar was held on Saturday 15th March 2003 at the YMCA Hall, Fort
Street, as the British Council Hall was not available. The sessions were held as
follows:
Morning Session:Improving the management of records in the public service
Resource Person:Mr Albert Moore, Government Archivist
Afternoon Session:Building effective coalitions to promote good governance in Sierra Leone
Resource Person:Mrs Olayinka Creighton-Randall, Coordinator, Campaign for Good Governance
It is pertinent to mention that the PSRU has been collaborating effectively with the
Establishment Secretary’s Office, particularly its Training and Recruitment Division
in running these seminars. Since that office has been otherwise engaged in organising Basic Clerical Training Courses in the Provinces, it was only possible to run two weekend seminars during the period under review.