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Human Resource Management,
Decentralisation and Public Sector
Performance
East African cases
Presentation by Dr Per
Tidemand at Ryukoku
University September 2006
www.dege.biz
Overview of Presentation
1.
2.
3.
4.
Types of decentralisation reforms (examples
from Tanzania and Uganda),
Analytical Framework for understanding
HRM under decentralisation,
Differences in decentralised HRM in East
Africa,
2006 Survey on HRM and staff motivation in
Tanzania and Uganda
1. Types of decentralisation
Deconcentration: decentralise
responsibilities to field level CG staff,
 Delegation: decentralisation to semi
autonomous organisations but
accountable to CGs – typically Executive
Agencies
 Devolution – decentralisation to (semi)
autonomous Local Governments –
”democratic decentralisation”

Slide 2
Objectives of decentralisation
Delegation Deconcen- Devolutration
tion
Plan and deliver services
more effective and
efficiently
Bring services closer to
local communities (incl
”the poor”)
Enhance participation
and local democracy
yes
yes
yes
yes
yes
yes
Slide 3
Dimensions of decentralisation
1.
2.
3.
Political
Financial
Administrative:
1.
2.
3.
Functions
Organisation
Human Resources
Slide 4
1.1 Types of decentralised Public
Service
Tanzania
N
Ministries
26
Staff
(T)
Uganda
Autonomy
N
Staff
(T)
Autonomy
106
Some
18
29
Limited
120 189
Some
76
190
Substan
-tial
20
Some
73
1520
Substan
-tial
deconcentration
LGs
Devolution
EAs
delegation
Ni
Slide 5
2. Framework for understanding Decentralisation of
HRM Functions (A Evans WB)
Impact on Administrative Autonomy:
Dimensions of the employer
function:
Budget Transparency
 Paying staff from its own budget
Budget & Establishment Control
 Controlling overall staff numbers
 Controlling staff no’s in local offices
 Authority to dismiss surplus staff
Recruitment
 Recognition as the formal employer
 Authority to hire
 Ind. merit-based recruitment mech.
Career Management
 Transfers within local government
 Horizontal mobility
 Promotion
Performance Management
 Directing & supervising activities & tasks
 Conducting evaluations
 Ability to discipline/fire
Pay Policy
 Setting local hardship/remote allowances
 Setting overall wage rates
Hold staff
accountable
Ability to:
Manage
Allocate
financial
staff
resources

Attract &
retain
skilled staff
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2.Suggested functions most critical to
decentralization

= most critical
Dimensions of the employer function:
Budget Transparency
 Paying staff from its own budget
Budget & Establishment Control
 Controlling overall staff numbers
 Controlling staff no’s in local offices
 Authority to dismiss surplus staff
Recruitment
 Recognition as the formal employer
 Authority to hire
 Ind. merit-based recruitment mech.
Career Management
 Transfers within local government
 Horizontal mobility
 Promotion
Performance Management
 Directing & supervising activities & tasks
 Conducting evaluations
 Ability to discipline/fire
Pay Policy
 Setting local hardship/remote allowances
 Setting overall wage rates
Impact on Administrative Autonomy:
Hold staff
accountable
Ability to:
Manage
Allocate
financial
staff
resources

Attract &
retain
skilled staff













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3.Decentralisation of HRM in TZ and Uganda
Tanzania
Dimensions of the employer function:
EA
Uganda
LG
EA
LG
Budget Transparency
Paying staff from its own budget
Budget & Establishment Control
 Controlling overall staff numbers
 Controlling staff no’s in local offices
 Authority to dismiss surplus staff
Recruitment
 Recognition as the formal employer
 Authority to hire

Ind. merit-based recruitment mech.
Career Management
 Promotion
Performance Management
 Directing & supervising activities & tasks
 Conducting evaluations
 Ability to discipline/fire
Pay Policy
 Setting local hardship/remote allowances
 Setting overall wage rates

no
No
Partly
Partly
partly
Yes
No
P
partly
Yes
Yes
Yes
P
Partly
Partly
Partly
Yes
Yes
Partly
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Yes
partly
Partly
Yes
Yes
Yes



No
NO



partly
NO



Yes
YES



Partly
NO
Slide 8
4. Study of HRM practices in TZ and UG


Survey of the perceptions of public servants,
12 organisations:
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2 Executive agencies in each country,
2 local governments in each country,
2 ministries
Nine of the above were classified as below or
above average performers.
Questionnaire survey (400 persons) and 24
focus group discussions,
Emphasis on officers (graduates) and finance
and HR staff.
DIIS and Dege – 2 months of work
Slide 9
4a. Application of Merit in Public Service
General satisfaction with HRM
procedures, but substantial differences
among organisations
 Most dissatisfaction in LGs,
 In both countries clear link between
staff assessment of merit in HRM and
organisational performance.

Slide 10
4B: Cross tabulation of recruitment
practices and organisational
performance
15
14
13
12
11
10
9
8
N=
155
Above Average
103
Below average
Performance
Slide 11
4c. Staff motivation



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
Self assessments: Salaries
Allowances more or equally important
Public Servants relatively well paid (compared
to other citizens)
Private sector employment not considered
realistic alternative
But also elements of ”total reward strategy”




Job security,
Career prospects,
Training as well as
HRM Management = clear objectives for staff
Slide 12
+ face to face interaction
4d. Management style and performance

Clear links in survey and focus group
discussions between performance and
management style
Setting clear targets,
 Delegation
 Direct personal interactions,
 Feedback on individual performance,
 Fairness and transparency

Slide 13
4e. Conflicting norms

Self interest but also


Recognition of merit,
Quest for meaningful work and work conditions,

Fairness > < hard performance enhancement
measures (graduated pay etc)
Loyalty to colleagues > < performance

Potential for influencing by management

Slide 14
4f. Operational Implications
a)
b)
c)
d)
e)
f)
g)
Pay Reform not only motivator
Introduce total reward approach to
motivation of staff,
Improve day to day HRM,
Reduce pay and facilitation differentials,
Improve credibility of OPRAs,
Improve compliance to merit in HFTP and
reduce political interferences (DSCs),
Improve information on HFTP events
Slide 15
4g. Further Work
1.
2.
3.
4.
Document best HRM practices,
Develop diagnostic tool for rapid
assessments of HRM practices
Analyse politicians perceptions (incl
DSC),
Include frontline service providers in a
study
Slide 16
End of
Presentation