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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 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 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: 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 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