Download CHARTERED INSTITUTE OF PERSONNEL MANAGEMENT OF

DRIVING PERFORMANCE IN
PUBLIC SERVICE
BY
DR YEMI KALE
STATISTICIAN-GENERAL OF THE FEDERATION / CHIEF EXECUTIVE OFFICER
NATIONAL BUREAU OF STATISTICS
ABUJA
15 OCTOBER 2015
OUTLINE…
Outline
A. Introduction / concepts
B. The public sector in
Nigeria’s recent
democratic experience
C. Public sector contribution
to growth
D. Challenges to driving
public sector performance
E. Case study - Leading
performance culture change
at NBS
F. Strategies for driving
public sector performance
G. Conclusion
A. Background
Economics deals with:
Personnel Management focuses on:
• the optimal allocation of productive
resources
• concerned with the management of human
capital and how it relates to other factors of
production in order to deliver some output
• welfare of the human asset
• human entity as a resource to be engaged
and deployed in the production and delivery
of goods or services
• improving the productive capacity of human
asset
HUMAN
ASSET
IMPROVING OUTPUT PERFORMANCE
A. Background
• High-income countries and world
class organisations place a premium
on people
• deliberate, specific, carefullythought, targeted policies to develop
workforce
• promoting knowledge
• supporting research
• rewarding innovation
• problem-solving orientation
• National Goal: global competitiveness
• Corporate Goal: competitive advantage
IMPROVING OUTPUT PERFORMANCE
A. Background
• Performance?
• extent to which pre-determined
objectives have been achieved using
pre-determined inputs and working
under conditions which may or may not
be pre-determined.
•relates to how the organisational entity
is able to utilise its given input
resources to achieve its pre-set goals
• a ratio of input use to output
attainment, under certain conditions
• Important points to note:
• inputs/resources
• outputs/objectives/goals/results,
• the context/conditions
INPUT
OUTPUT
STRUCTURE OF
ORGANISATION
A. Background
• These can be regarded as elements of an
organisation’s structure
STRUCTURE
• An organisation’s structure influences the
conduct of entities within it
• The conduct of these entities determines
the organisation’s overall performance and
ability to achieve its objectives
CONDUCT
• This approach is known as the
Structure-Conduct-Performance (SCP)
paradigm*
PERFORMANCE
* SCP is typically used in the analysis of market structure and industrial
A. Background
• We can use the SCP paradigm
to analyze, evaluate and
understand the performance of
the public sector (as an
organisation)
• The structure of the public
service influences the conduct of
public servants
• The conduct of public servants
in turn determines the overall
performance of the public service
Public
Service
Structure
Public
Servant
Conduct
Performance
of Public
Service
B. The public sector in Nigeria’s recent
democratic experience
• What is the public service?
• Service responsible for the
public administration of a
country.
•Civil service – British
equivalent
• In Nigeria, the public service is
made up of
• the civil service – career staff
whose appointment, promotion
and discipline are under the
Federal Civil Service
Commission (FCSC)
• other public servants –
elected or appointed
government officials whose
remuneration is drawn from
public treasury
Public Service –Public
administration
Civil service in Nigeria –
Federal Civil Service
Commission
Others elected/appointed by
the government
B. The public sector in Nigeria’s recent
democratic experience
o What is the relationship between public and private sector performance?
 Slow growth of
public sector
performance caused
by socio-political and
economic history
events
Public sector
Private sector
 Era of liberalization,
privatization and
commercialization
resulted in better
capacity of private
sector
Illustrative Relationship between Private and Public Sector
performance
B. The public sector in Nigeria’s recent
democratic experience
Since 1960,
various
attempts have
been made at
trying to
reform the
public service
•
•
•
•
•
MORGAN COMMISSION 1963
ADEBO COMMISSION 1971
UDOJI COMMISSION 1972-1974
DOTUN PHILIPS PANEL 1985
CIVIL SERVICE REORGANIZATION DECREE
1988
• ALLISON AYIDA PANEL 1995
B. The public sector in Nigeria’s recent
democratic experience
 Nigeria’s public sector has since
been undergoing reforms to ensure
efficiency and effectiveness.
 In September 2013, the Bureau of
Public Service Reforms (BPSR) was
established.
 The BPSR was established to ensure
the reform of all Ministries,
Departments and Agencies (MDAs)
 The Public Service Reform Team
(PSRT) had the BPSR as its
secretariat
 The PSRT also gave birth to the
Oronsaye Committee
B. The public sector in Nigeria’s recent
democratic experience
 The PSRT produced two generic guidelines
approved by the Federal Executive Council in
2006 for reform and restructuring of MDAs
and Parastatals.
 This entailed cleaning up the staff headcount
and payroll.
 Redesigning MDAs structure to between 4 and
8 departments and 2-4 divisions per
department
 The Oronsaye Committee of the PSRT
developed eight criteria for retirement of
public servants- as part of clean up measures
 Performance Contract for heads of MDAs –
Initiative driven by National Planning
Commission between 2011-2014
C. Public sector contribution to growth
What relationship can be drawn between the role of public sector on Nigeria’s
growth & development?
GDP = C + I + G + (X-M)
Relative share of public and private sector expenditure in total GDP (2010-2014)
18%
16%
14%
Final consumption expenditure of
general government (Public sector)
12%
10%
Gross Fixed Capital Formation
(Private sector)
8%
6%
4%
2%
0%
2010
2011
2012
2013
2014
 Gross Domestic Product (GDP)- Measure of total value of all final goods and services produced in an
economy in one year.
 Performance of the public service – reflected in the performance of ‘G’ (government expenditure)
 Total final consumption of government accounted for 8.9% of total nominal GDP in 2010

It declined slightly to 8.3% in 2012 and 7.5% in 2014.
C. Public sector contribution to growth
Annual growth rate of nominal GDP, public expenditure and private investment
Annual growth rate of GDP, government expenditure and gross capital formation (2011-2014)
Annual Growth rate (%)
20.00
15.00
GDP at current purchasers' value
10.00
Gross Fixed Capital Formation (Private
sector)
5.00
Final consumption expenditure of
general government (Public sector)
0.00
2011
2012
2013
2014
-5.00
Trends in growth rate of both gross fixed capital formation (private sector expenditure) and
government expenditure
 In 2011, Private sector investment grew by about 7.88%, and after a slower
growth of 3.9% in 2012, it rose by 11.6% in 2013 and 18.4% in 2014.
 Public sector expenditure which grew faster than investment expenditure in
2011 (12%) declined by 2.6% in 2013 but recovered to 14.5% in 2014, still
lower than the private sector rate.
C. Public sector contribution to growth
Public sector performance has been weaker
 In contribution to growth
 In delivery of public service
 In achieving national
development objectives
We can observe that the public sector (service) contribution to
the economy still leaves much to be desired
Public service, through the government, plays an important role
beyond contributing directly to economic activity and growth
Some of which are intangible and may therefore not be entirely
captured by an indicator such as the GDP
D. Challenges to driving performance in the
public sector
A Structure-Conduct-Performance
Perspective
STRUCTURE
• Number of competing firms
• cost of entry and exit
• Number of products
 A useful tool for understanding
and analysing the issues in the
public service system is the
structure-conduct-performance
approach (SCP)
 The SCP approach enables us to
link performance with its possible
causes
CONDUCT
• strategies firms pursue to gain competitive
advantage
• Firm: competitive disadvantage, competitive
parity, or sustained competitive advantage
• Society: productive and allocative efficiency,
PERFORMANCE employment, progress
 Structure – issues related to
fundamental
long
lasting
characteristics of public service
 Conduct
–
Behaviour
attitudes of public servants
and
 Performance – attainment of
desirable outcomes favourable to
public interest
D. Challenges to driving performance in the public
sector
A modified Structure-Conduct-Performance (SCP) assessment for the Nigerian public service
STRUCTURE
CONDUCT
PERFORMANCE
• Entry and exit conditions: recruitment, consideration for merit and
federal character principles;
• Number of players involved: over 500 MDAs; multiple organs of
governance (OHCSF, FCSC, MDAs)
• Product characteristics: culture of individual work and performance
orientation
• Specialization: personnel training, planning and management system
• Collective organisations: trade and labour unions with strong
negotiation machinery
• Rule of Law: sense of fairness/equity/justice
• Due process: attitudes towards fiscal / financial responsibility
• Transparency: Values of honesty, loyalty
• Accountability: personal / professional responsibility
• MDA: Achieving MDA mission / vision / objectives / mandates
• National: contribution to national growth and development
 Structure – 500+
government agencies,
many with overlapping
functions.
 Conduct – Decline in
social value systems –
leading to lack of such
values as honesty,
transparency, and fiscal
responsibility amongst
civil servants
 Performance – direct
result of poor attitude
and conduct of public
servants as determined
by structure of service.
E. Case study – Leading performance culture
change at NBS
The National Bureau of Statistics ; Who We Are and What We Do
 The National Bureau of Statistics
(NBS) is the sole custodian of all
official statistics in Nigeria.
 The Statistics Act 2007, which
formally established the NBS, gives it
powers to coordinate the National
Statistical System
 NBS plays a vital role in informing
national policy through the regular
production
of
data
on
macroeconomic
and
social
conditions in Nigeria
E. Case study – Leading performance culture change
at NBS
1928-
-
Statistics unit
established by
Colonial
authorities
1957First Statistics
Act was passed
which gave
powers to
conduct
censuses, publish
statistical
information and
coordinate NSS
1988-
2004-
Civil service
reforms created
further
decentralization
by establishing
planning,
research and
statistics
departments in
all Federal
Ministries
Creation of
the 5-year
Statistical
Master-plan to
address the
decline in the
quality and
quantity of
official
statistics
1958Country adopted a
federal system
of government
with three
regions, which
led to
decentralization
of the statistical
system;
1960NSO transferred to
the Ministry of
Finance and
later to Ministry
of Economic
Development
Now called
FOS
2007Statistics Act was
passed which
formally
established
the current
National Bureau of
Statistics with
powers to
coordinate the
National Statistical
System
2010- Date
The National
Strategy for
the
Development
of Statistics
E. Case study – Leading performance culture change
at NBS
An Evaluation of the NBS Using The SCP paradigm
Structure
Conduct
• NBS as at 2011 still had a very top-heavy nominal roll with age of the
average staff well over 50.
• Statistical funding largely donor-driven.
• Direct budgetary funding for statistical production low, irregular and
unpredictable.
• Most staff were more concerned about their post-work life plans than
statistical production
• There was an undue focus on publishing expensive hard-copies
statistical reports
• Emphasis was given to data driven by donor demand than our core
national statistics needs
• structural issue of funding may also have led some officials to engage
in private practice
• Wrong attribution of NBS efforts to other institutions incl. CBN
• Government officials were more comfortable citing World Bank,
UNICEF and IMF figures than NBS numbers
Performance • Near blacklisting by partners
• Overall, the general public was always sceptical about any
government figures
New NBS
Management
Structure
Reforms
Improved
Statistical
Capacity
E. Case study – Leading performance culture change
at NBS
What changed? Mostly structural issues!
 The new NBS management leadership sought to re-define the Bureau’s
mission, clarify our objectives and identify our targets
 In early 2012, we prepared a Corporate Strategy and Implementation Plan
(CSIP) as a working document that set out the year’s goals and targets
 Later served the purpose of a funding proposal and a basis for
engaging in discussions with development partners and other
collaborating entities
 provided a working document outlining the indicators against which
we could track our performance at year-end.
 Data release calendar set up to enable our users anticipate and plan their
schedules around our release dates

Forced staff to work towards meeting data production deadlines.

Useful conduct modification effect on both the data users as well
as NBS staff
E. Case study – Leading performance culture change
at NBS
Major Statistical outputs
• CPI and Inflation report (Monthly)
• Economic Review / Outlook (Annually)
• General Household Survey (Annually)
• GDP Report (Quarterly/Annually)
• Foreign trade news (Quarterly/Annually)
• Access to ICT Report (Annually)
• Sectoral Wages & Emoluments (Annually)
• Unemployment (Annually,>> Quarterly)
• Gender statistics Newsletter (Quarterly)
• National Literacy Survey (Annually)
• Consumption pattern in Nigeria
(Annually)
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E. Case study – Leading performance culture change
at NBS
 Nigeria’s performance in statistical capacity and timeliness of data
reporting has continued to improve over the last four years.
 Trends as reported by the World Bank, for Nigeria and some
comparator countries and regions as at 2014
Nigeria
E. Case study – Leading performance culture change
at NBS
Nigeria
 Last year NBS had almost 6 million hits on its website and users downloaded
NBS reports over 2 million times compared to less than 100,000 hits and less
than 50,000 downloads four years ago.
 NBS also had by far the highest freedom of information requests and responses
of any agency in Nigeria
F. Driving public sector performance
Strategies for human resource (HR)-driven performance improvement system
 Some possible changes to
structure-related issues that can
help to drive forward the
performance of the public sector
are:
 Recruitment, appointment
and promotion.
 Discipline
and
anticorruption
 Improved performance in
staff training
 Preference
for
foreign
training institutions
 Performance tracking and
evaluation
 Value-orientation
Value
orientation
Performance
tracking and
Evaluation
Recruitment,
Appointment
Addressing
undue
preference for
Foreign Training
Discipline
Promotion
Anti
Corruption
Staff Training
F. Driving public sector performance
Strategies for human resource (HR)-driven performance improvement system
Recruitment, appointment and promotion.
• Focused and deliberate efforts are necessary to revamp the quality of
public servants
• Recruitment needs to be more targeted and professionalized, rather
than general
• Need to develop appropriate targets for each individual staff
Discipline and anti-corruption
• Need to address the structure issues that drive civil servants towards
misconduct.
• Strong institutions are needed to ensure that the anti-corruption laws are
applied equally and fairly every time and to everyone
F. Driving public sector performance
Strategies for human resource (HR)-driven performance improvement system
Staff training
• Training is a structural issue that directly influences the
conduct of officials and certainly their performance in the
delivery of public services
• Catalyst for achieving superior performance in the delivery
of public goods and services
Adequate
Staff training
Enhances
capacity building
Addressing undue preference for foreign training
institutions
• This requires a change in orientation among officials
• Staff training is to be linked to local institutions for the
purpose of addressing local circumstances that can
enhance service delivery
• Promoting a culture of local solutions to local problems
Improves public
service
performance
F. Driving public sector performance
Strategies for human resource (HR)-driven performance improvement system
Performance tracking and evaluation
• An important primary function of leadership
• Comprehensive system that takes into account
the structural factors towards modifying
behaviour and conduct of officers
Performance
tracking and
evaluation
Increased
Public Sector
performance
Value-orientation
• Personal interests should be subverted in the
interest of the public good
• Re-orientation needs to be more pervasive
within the civil service
• Rewards and punishments
Value
orientation
G. Summary of key points
 Progress is slow…
 Delivery of public services in Nigeria continues to improve, even if at a
slower than preferred rate.
 …but Change is possible
 Recent efforts at institutionalising performance monitoring and evaluation
reveal that the service can change given the right incentive system.
 Not just Conduct, but Structure
 It is not enough to change the conduct of public officials; the structurerelated issues in the service itself need to be addressed.
 Leadership matters
 Demand for better performance and improvement in public service
delivery needs to come from within the service itself.
 The political leadership has made clear the need to do things differently,
perform better and deliver results.
 Need to better track and evaluate performance
 both for personnel and institutions,
 incentive system that rewards performance and punishes otherwise
THANK YOU
HQ Address: National Bureau of Statistics
Plot 762, Independence Avenue
Central Business District
Abuja.
Email: [email protected]
[email protected]
Website :www.nigerianstat.gov.ng
www.facebook.com/nigerianstatistics
@nigerianstat
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