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REPUBLIC OF MOZAMBIQUE
PUBLIC ADMINISTRATION DEVELOPMENT AND
REFORMS STRATEGY (2011-2025)
“The public servant to serve better the Citizen”
Approved by the Council of Ministers at the 29th Ordinary Session 14 August 2012
1
LIST OF ACRONYMS
PA Public Administration
MTFS Medium Term Fiscal Scenario
CIRESP Inter-ministerial Commission of Public Sector Reform
CPI Corruption Perception Index
DIRE Identification Document for Alien Resident
e-CAF Online for Civil servants Data-base
e-SIP Electronic Subsystem of Personal Information
e-SISTAFE The State Financial Management Electronic System
GovNet Government Electronic Network
IFAPA Training Institute in Public Administration and Local Government
ISAP Higher Institute of Public Administration
NUIT Single Tax Identification Number
MDG Millennium Development Goals
NGO’s Non Governmental Organizations
PARPA Reduction of Absolute Poverty Action Plan
PES Economic and Social Plan
UNDP United Nations Development Program
SADC Southern Africa Development Community
SIGEDAP Public Administration Performance Management System
SISTAFE The State Financial Management System
ITC Information Technologies and Communication
UTRESP Public Sector Technical Unit Reform
2
Table of Contents
1. Introduction .......................................................................................... 10
1.1. Motivation of ERDAP ....................................................................................................................... 10
1.2. Rationale of ERDAP ........................................................................................................................ 11
2. Diagnosis of Mozambican Public Administration ................................................. 14
2.1. The Public Administration – Main Indicators ................................................................................ 18
2.1.1. Characterization of Civil servant ................................................................................................. 18
2.1.2. Evaluation of Services Provided .................................................................................................. 21
2.1.3. International indicators ................................................................................................................ 26
3. Strategic Guidelines ................................................................................. 30
3.1. Vision and Mission .......................................................................................................................... 30
Vision ......................................................................................................................................................... 30
Mission ...................................................................................................................................................... 30
3.2. Values .............................................................................................................................................. 30
3.3. Strategic Objectives and Components Development ................................................................... 31
3.4. Main Goals of ERDAP ..................................................................................................................... 34
3.5. Critical Factors of Success ............................................................................................................. 36
4. Components of Development of Public Administration ........................................... 41
4.1. Professionalization of Civil servants and State Agents (Component 1) ...................................... 43
4.1.1. Background: Achievements and Progress .................................................................................. 43
4.1.2. Current Situation: Challenges...................................................................................................... 44
4.1.3. Development Strategy: Objectives and Intervention Areas ....................................................... 46
4.1.4. Performance Indicators ............................................................................................................... 47
4.2. Decentralization and Deconcentration (Component 2) ............................................................... 47
4.2.1. Background: Achievements and Progress .................................................................................. 47
4.2.2. Current Situation: Challenges...................................................................................................... 48
4.2.3. Development Strategy: Objectives and Area of Performance ................................................... 49
4.2.4. Performance Indicators ............................................................................................................... 50
4.3. Improving the Provision of Service (Component 3) ...................................................................... 51
4.3.1. Background: Achievements and Progress .................................................................................. 51
4.3.2. Current Situation: Challenges...................................................................................................... 52
4.3.3. Development Strategy: Objectives and Areas of Action ............................................................. 54
4.3.4. Performance Indicators ............................................................................................................... 54
4.4. Consolidation and Coordination of Structures of Public Administration (Component 4) ........... 55
4.4.1. Background: Achievements and Progress .................................................................................. 55
4.4.2. Current Situation: Challenges...................................................................................................... 56
4.4.3. Development Strategy: Objectives and Areas of Performance ................................................. 57
4.4.4. Performance Indicators ............................................................................................................... 58
4.5. Enhancing Integrity in Public Administration (Component 5) ...................................................... 58
4.5.1. Background: Achievements and Progress .................................................................................. 58
3
4.5.2. Current Situation: Challenges...................................................................................................... 59
4.5.3. Development Strategy: Objectives and Areas of Intervention ................................................... 60
4.5.4. Performance Indicators ............................................................................................................... 61
4.6. Technological Modernisation and Innovation (Transversal Component A) ................................. 62
4.6.1. Background: Achievements and Progress .................................................................................. 62
4.6.2. Current Situation: Challenges...................................................................................................... 63
4.6.3. Development Strategy: Objectives and Areas of Action ............................................................. 64
4.6.4. Performance Indicators ............................................................................................................... 64
4.7. Monitoring, Evaluation and Communication (transversal Component B .................................... 65
4.7.1. Background: Achievements and Progress .................................................................................. 65
4.7.2. Current Situation: Challenges...................................................................................................... 66
4.7.3. Development Strategy: Objectives and Areas of Action ............................................................. 66
4.7.4. Performance Indicators ............................................................................................................... 67
4
Table of Contents
Table 1– Services with a Greater Perception of Improvement by the InquiredErro! Marcador
não definido.
Table 2– Services with Minor Perception of Improvement by the inquired ........................ 31
Table 3 –Important/Crucial Aspects for the Satisfaction of Citizens and Companies ....... 33
Table 4– Aspects which are in need of Improvements/with room for improvements .... 324
Table 5– Mozambique in the Electronic and Participation Government Indexes 2010
(eGovernment and eParticipation 2010) .............................................................................. 38
Table 6 – ERDAP Impact Indicators and the respective goals Erro! Marcador não definido.
Table 7 – Action Areas of the Component: Professionalization of Civil servantErro! Marcador
não definido.
Table 8 – Indicators of the Components: Professionalization of Civil servant ................... 62
Table 9 – Action Areas of Decentralization Component 66
Table 10 – Indicators of the Component of Decentralization and Devolution Components 67
Table 11 – Action Areas of the Component: Improving the Provision of Services ............. 71
Table 12 – Indicators of the Component; Improving the Provision of Services ................. 72
Table 13 – Action Areas of the Component: Consolidation and Coordination of Public
Administration Structures ....................................................................................................... 76
Table 14 – Indicators of the Component Consolidation and Coordination of Public
Administration Structures ....................................................................................................... 76
Table 15- Action Areas of the Component: Enhancing Integrity in Public Administration 80
Table 16 – Indicators of the Component Enhancing Integrity in Public Administration .... 81
Table 17 – Action Areas of the Component: Transversal Technological Modernization and
Innovation ………………………………………………………………………………………85
Table 18 – Indicators of the Component :Transversal Technological Modernization and
Innovation ................................................................................................................................ 86
Table 19 – Action Areas of the Component :Transversal Monitoring, Communication and
Evaluation ………………………………………………………………….............................89
Table 20 – Indicators of the Component :Transversal Monitoring, Communication and
Evaluation ................................................................................................................................ 90
5
Index of Figures
Figure 1– Documents which Constitutes the ERDAP ........................................................... 18
Figure 2– Disintegration of ERDAP (Short, Medium and Long Term) ................................. 19
Figure 3– Integration into Government Planning Cycle 19
Figure 4 –Mozambican Public Administration SWOT Analysis (Strength, Weekness,
Oportunities, and Threats) ...................................................................................................... 23
Figure 5– Distribution of Civil servants by Provinces ............... Erro! Marcador não definido.
Figure 6– Values ......................................................................... Erro! Marcador não definido.
Figure 7– Strategic Objectives ................................................... Erro! Marcador não definido.
Figure 8– Strategic Objectives and Corresponding ComponentsErro! Marcador não definido.
Figure 9 – Function to be Asserted ...................................................................................... 49
Figure 10 – Macro Objectives of Monitoring ......................................................................... 53
Figure 11– Development Components ................................................................................. 55
Figure 12 – The Time line of achievements and progress ....... Erro! Marcador não definido.
6
Index of Graphs Graph 1– Number of Civil Servants per each 100 Inhabitants ........................................... 26
Graph 2– Civil Servants Sector of Activity ............................................................................ 27
Graph 3– Civil Servants Pyramid Age Groups ACivil servant28
Graph 4– Civil Servants by Province and by Sex .................................................................. 28
Graph 5 – The State Civil Servants by Province and Qualifications levels ......................... 29
Graph 6– Most Demanded Services ..................................................................................... 35
Graph 7– Level of Satisfaction with slope of services provided .......................................... 35
Graph 8–“Doing Business 2011” Ranking-Comparative AnalysisErro! Marcador não definido.
Graph 9–Evolution in “Corruption Perception Index” Ranking (2004-2010) ..................... 37
7
Preface
Mozambique: Improving and strengthening reforms in the Public Sector
It is with great joy and satisfaction that we launch the Public Administration Development
and Reforms Strategy 2012-2025, which ensures the continuity of the Public Sector Global
Reforms Strategy implemented between 2001 and 2011, the results of which enable us to
take this qualitative leap towards the continued improvement of public administration in
Mozambique. The Public Administration Development and Reforms Strategy which we are
launching embodies our aspirations for the public sector until the year 2025.
With this strategy, we intend to build a public administration grounded in the meritocracy,
integrity and professionalism values, which are the key vectors for the gaining’s
consolidation brought about by the Public Sector Global Reforms Strategy. We envisage a
public administration system that is responsive to the challenges of socio-economic
development of our beloved Motherland, in which the Civil Servant proactively guides and
supports the citizen in his/her relationships with our public administration system, and
undertakes steps and measures to simplify service delivery procedures, processes and
mechanisms. The fighting against bureaucracy and corruption, in particular, will continue to
be the centre of our priorities as well as the opening and inclusive governance development.
Acknowledging the merit and importance of the Public Administration Development and
Reforms Strategy, we are certain that Reforms will continue to be fuelled by the energy of
its major actors namely public sector leaders and managers, civil servants, the private
sector, socio-professional organizations and our development partners. We entrust our
confidence upon them because they represent with no doubt the pillars for the consolidation
of our Public Administration.
The implementation of Public Administration Development and Reforms Strategy brings new
paradigms regarding to the relationship between the State and the Citizen, by which public
leaders and managers, civil servants and state agents are all called upon to renewing their
commitment to better serving the Mozambican public administration and the society in
general. Thus, the civil servant must continue to excel in his/her daily provision of services
to the public and grow aware to the fact that the most profound reforms start within one´s
self with change of attitude and behaviour towards the citizen who should be served with the
highest standards of service quality.
Maputo, 30 August 2012
Armando Emílio Guebuza
(The President of the Republic of Mozambique)
8
EXECUTIVE SUMMARY
The Public Administration Development and Reforms Strategy -2012-2025 (ERDAP)
emerged from the need to operationalizing the Government Five-Year Programme (PQG)
2010-2014,taking into account the results achieved out of governance programme and the
implementation of Public Sector Global Reform Strategy (EGRSP) 2001-2011, with its
alignment with the objectives set forward in the Agenda 2025; the Action Plan for the
Reduction of Poverty (PARP 2010 - 2014) and the Millennium Development Goals (MDGs) in
the area of Governance.
This document lays out a vision for the public administration development in Mozambique
over the next 15 years, identifying key objectives to be achieved, an integrated approach to
the different sectors both at central and local levels, and a coordinated and synchronized
implementation to ensuring maximum synergies across various public institutions.
The strategy materialized in this document, is a result of a comprehensive discussions and
consultation process.
The Strategy is also supported by several transversal policies that have been defined and
are in implementation, such as the Mid-term Pay Policy, the Business Environment
Improvement Strategy 2008-2012, the Fight Against HIV and AIDS in the Public Service
2009 – 2013 Strategy, the Gender Strategy for the Public Sector 2009-2013, the Disabled
People in Public Service Strategy 2009-2013 and the Electronic Government Strategy.
The ERDAP was developed to meet the vision of "a Citizen-centred Public Administration,
one that promotes development and is geared towards the provision of quality services."
Next, the seven strategic objectives to be pursued by the Public Administration in an
integrated and transversal manner are outlined:
1. To provide the Public Administration with qualified civil servants;
2. Bringing Public Administration closer to the citizen;
3. Improvement of the quality of services;
4. Strengthen the Organization of Public Administration;
5. Promotion and dissemination a culture of integrity in the Public Administration and in the
society;
6. Use information and communication technologies and innovations to improve service
provision; and
7. Monitor the implementation and assessment of the results.
9
The defined strategic objectives are clustered in development components, which reflect the
main areas of improvement of public administration in the next 15 years. Five main
components are defined:
Component 1 - Professionalization of Civil servant
Component 2 - Decentralization and Deconcentration
Component 3 – Improvement of Service Delivery
Component 4 - Consolidation and Coordination of the Structures of Public
Administration
Component 5 - Enhancing Integrity in Public Administration
Additionally, the strategy is supported by two transversal components that represent
elements of speeding up and implementation of the entire Plan:
Transversal Component A - Technological Modernisation and Innovation
Transversal Component B - Monitoring, Evaluation and Communication
The strategy is operationalized through a Five-year Action Plan, the first of which is to be
implemented between 2011 and 2014, to align it with the cycle of the Government's Five
Year Programme 2010-2014. Each action plan identifies the initiatives to be implemented,
its timeframe and implementation responsibilities. Action plans are further stretched out or
spread out into activity plans on an annual basis.
To ensure the involvement of all Mozambican public administration and the mobilization of
human and financial resources essential to the implementation of ERDAP, the Government,
through the Ministry of Public Service, will coordinate the process of monitoring the
implementation of the Strategic Plan.
The success of the implementation depends on the involvement of all sectors, including
external actors (development and social partners), contributing significantly to the
development of the country.
10
INTRODUCTION This document defines an integrated and integrative strategy aligned with the
constant/permanet challenges of the vision of governance and development of the
Mozambican public administration. The elaboration of ERDAP took place on a participatory
and inclusive process involving various stakeholders (public, private, civil society) and at all
levels (central and local) through consultation meetings and seminars and work sessions.
This joint dynamic construction and interaction occurred throughout all the process of
ERDAP preparation.
To ensure the consistency of the Strategy, main documents and instruments have been
taken into account, namely legislative and planning instruments, mid and long-term
planning tools (national, sector, provincial and transversal instruments) as well as a review
of key international commitments.
1.1. MOTIVATION OF ERDAP
ERDAP emerged from the need to:
1. Ensure orientation and guidelines regarding major Government approaches on
governance geared to the consolidation of public administration through the
optimization of service delivery, building upon the momentum created by the ERGS,
thus contributing decisively to a sustainable development of Mozambique;
2. Ensure coordination between the various initiatives promoted by various actors in the
public administration, in view of its modernization to respond effectively to the
challenges of development and poverty reduction in the country.
3. Set goals that enhance the commitment of various stakeholders and strengthen the
credibility to the process of improving service delivery by Public Administration (PA);
4. Promote the mobilization of the various stakeholders both internal (sectors) and
external (development partners, civil society, etc.) ensuring comprehensiveness and
an inclusive process;
5. Enhancing the already started EGRSP-process of dynamic transformation towards a
Public Sector that is intended1 to be:
Agile, decentralized, (de)bureaucratized and simplified and focused on the
quality of public services, that are provided as close as possible to the citizen;
Modernized and with high levels of technology incorporation;
Democratized, with a high degree of institutionalization of participation, and a
high ability to respond to citizens demands either individually or collectively.
1The Public Sector Reform Program – phase 2 (2006-2011)
11
Transparent, both with regard to the use of public funds and other assets, as
well as to what refers to the procedures and evaluation of results;
Endowed with qualified personnel, professionalized and ready for change,
with a high sense of serving the public and of effectiveness and
accountability.
Notwithstanding the results already achieved, we recognize the existence of challenges,
thus the rationale for the ERDAP in order to overcome the challenges identified.
The ERDAP is not meant to be a rapture with the past reforms interventions, but rather it
intends to ensure continuity and consolidation of past reforms, that have been implemented
under the motto " The Civil servant to serve better the Citizen”
The motto adopted for ERDAP is the same as that established for the EGRSP since it
conveys the values and orientation foreseen for the period 2011-2025 and reassures the
pathway that has been followed so far.
1.2. RATIONALE OF ERDAP
The aim of ERDAP is to set a vision for public administration through 2025, guiding the
efforts of various organs towards a common cause and integrating the respective initiatives
as part of a coordinated effort.
Thus, ERDAP serves three main purposes:
Identify the strategic objectives and priorities for intervention for all Public
Administration in the next 15 years;
Specify which strategic activities contribute to achieving the objectives set, in a
horizon of 5 years;
Encourages the sharing of good practices and concerted interventions of the various
Public Administration institutions.
Documents Comprising the ERDAP
The following documents comprise the ERDAP:
(i) strategy document, which presents the vision, mission, values, strategic objectives
and main goals for the development of public administration in a
15-year period;
12
(ii) action plans, which define the strategic activities (and timeframes) to be developed
for each period of 5 years and respective annual activity plans and budgets; and,
(iii) a communication plan, which outlines the communication strategy and
communication support for the dissemination of ERDAP.
Figure 1-Documents that constitute ERDAP
PLANNING CYCLE
The 15-year vision defined in ERDAP is disaggregated into action plans with a time line of 5
years of which there are presented to the initiatives that unite each of the components of
development and promote the development of defined indicators.
To promote the alignment of the Action Plans with the Government's 5-Year Program, Action
Plans are subdivided into three 5-years terms, 2011-2014, 2015-2019 and 2020-2024
respectively. The year 2025 will be reserved for global evaluation and strategic redefinition.
The Action Plan is further disaggregated into annual plans of activities at a more operational
level. These plans are in line with the Economic and Social Plan (PES), in the domain of
Public Administration.
Strategy Document, with a time line of 15 years, in which they are defined:
o Vision, Mission and Values of Public Administration
o Strategic Objectives and Main Goals
o Components of the Development Areas of Action and Performance Indicators,
o Strategy of Governance and Monitoring.
Action Plan
Communication Plan
ERDAP - Strategic Plan -
Operational Plan, for 5 years, which presents for each component and area of action the initiatives that, with their respective timeline and responsible people. The Action Plans are disintegrated into annual plans of activities.
ERDAP support document that aims to leverage the
operationalization composed by the Communication
Strategy, which identifies the target group and the focus of
communication, and the definition of communications support
materials.
13
Figure 2- Desegregation of ERDAP (Short, Medium and Long Term)
The ERDAP is a flexible instrument as it is adjustable and updatable thorough the activity
plan, the Medium Term Fiscal Framework (MTFF), the Economic and Social Plan (ESP) and
of the State Budget (OE), which are tools to operationalize the Five-Year Plan of the
Government.
The ERDAP is also framed into the public planning cycle by promoting the alignment of the
components related to the development of Public Administration of different Provincial and
Sector-Base Strategic Plans.
Figure 3 - ERDAP in the Framework in Public Planning Cycle
GOVERNMENT’S FIVE YEAR PROGRAM
Action Plan for Porvert Redution
Medium Term Fiscal Framework (MTFF)
Economic and Social Plan (ESP)
State Budget (SB)
Integration of the
sector-base strategy
ERDAP – Action Plan
Other Strategic Plans
Integration of Goals and
objectives
Macro and Sector-
based Stages
Limit of Expenses
Consistency of budgeting with actions and policy objectives
Sector-based, Provincial and District
Strategic Plan
Medium Term Planning Annual Operacional Plans
Harmonization of Projects and
iniciatives
Resource Framework
Strategic Dimension
Operational
Dimension
ERDAP
Activity Plans
Action Plan
15 years vision document and strategic guidelines.
Operational Plan, for 5 years (3 to be developed during the period of the execution of ERDAP))
Operational Plan and Annual Budget (15 will be produced during the period of execution of ERDAP)
Longo term
Medium Term
Short Term
(…)
14
DIAGNOSIS OF MOZAMBICAN PUBLIC ADMINISTRATION
The Public Administration is a set of organs, services, civil servants and State agents, as well
as other collective public entities that ensure the delivery of public services to citizens.
According to the 2nd Statistical Yearbook of the Civil servants and State Agents, the
Mozambican Public Administration, had in 2009 a total of 179,383 Civil servants and State
agents, excluding the defence forces and state security.
The current situation of Mozambican public administration results also from an ample
process of reforms initiated in 2001 with the launching by the Government, of the Global
Strategy for Public Sector Reform (EGRSP), aiming to guide public institutions through
improvements in service delivery, responsiveness to society, and towards a public culture of
integrity, transparency, efficiency and effectiveness.
A highlight of most significant reforms is outlined below:
The revision of the Organic Statutes and Personnel Tables they are important insofar
as they constitute the cornerstones in the rationalization of public institutions;
The expansion of basic services to the districts constitutes a key factor in increasing
service delivery timeliness. Moreover, simplified licensing of commercial and
industrial activities contributed substantial to improve the business environment in
Mozambique, the country image and its appeal for investors. In this context it is also
essential to highlight the importance of the “Balcões de Atendimento Único” (One
Stop Shops) in improving access and provision of public services;
The ongoing decentralization process demonstrates the strong commitment from the
Government to take the decision making process much closer to the citizen;
The big bet that has been made at the level of human resources demonstrates the
importance of professionalization of the Public Service. On the other hand shows a
strong tendency towards the growth of investment in education and training of
human resources at various levels, thus providing services more efficiently and
providing autonomy to various organs at the level of internal management. It is
essential at this component to highlight the importance of the consubstantiality of
Government Schools on the System of Public Administration Training (SIFAP) and
materialized by ISAP and IFAPAs and CEGOVs;
15
The level of efficiency improvement and financial management of the state, the
SISTAFE and its electronic application were prevalent in improving the transparency
of public accounts, the swiftness of execution of the State Budget and better
management. Moreover, the electronic tool e-SISTAFE made an important
contribution in the decentralization of funds from the state budget to the provinces,
enhancing their autonomy. Also adds to the revision of the State Procurement
process that created facilities so that at local level the participation of small
entrepreneurs in providing services to the State.
With regard to fighting corruption and improving the efficiency of the Courts, anti-
corruption laws packages were approved, and other legal instruments for acquisition
and contraction of public goods and services for public contracting of public works,
supply of goods and rendering of service to the state institutions. Decree No
15/2010, May 24th), as well as the creation of anti-corruption nucleus in state
institutions.
Nevertheless the fact that the Mozambican Public Administration has developed activates
with positive impacts, there are challenges which are and opportunities for improvement,
among which:
At the district level there are a number of challenges associated with lack of
adequate infrastructures, technical administrative capacity, due to the limited
number of qualified employees. Associated with these limitations is the poor
communication network in many districts, which limits the expansion of GovNet, e-
CAF and e-SISTAFE important tools in the strategic management of human resources.
Additionally, the level of proper revenues generated by the local organs is still low;
At the level of human resources, despite various efforts developed in their training,
there is still a desirable low average qualification and sometimes inadequate for the
real needs of the organisms;
In the fight against corruption it is necessary to establish effective internal control
mechanisms, as well as an adequate quantity and quality workforce, while at the
same time enhancing the monitoring and ensuring the involvement of all actors of
development;
The introduction of a more robust system of monitoring and evaluation and
capacitated resources in different levels, enabling a punctual monitoring and
decision making based on analysis of the actual impacts;
16
The above mentioned transversal financial constraints and factors, although there
are many policies and projects whose results will be beneficial for the entire public
sector, some need implementation that has been limited because of not having
means to do so.
In the table below, are systematized the main evidence identified through the SWOT
analysis (Strengths, Weaknesses, Opportunities and Threats) that influence the
development process of Public Administration in Mozambique.
Figure 4 – SWOT Analysis (strengths, weaknesses, opportunities, and threats) of
Mozambican Public Administration
Strengths
• Political will to fight corruption and embezzlement of funds
or properties of the State;
• Political Commitment in consolidation of public
administration through a broad reform process;
• Expansion of the Administrative Court;
• Revitalization of the State Administrative Inspection;
• Fundamental tools and methodologies for the development
of public administration already introduced;
• Approval of the location allowance as a result of salary policy
objectives that attracts settlement of qualified staff in the
recondite districts through attractive remuneration incentive
and reduction of length of service for the retirement;
• Continued commitment to professionalism of human
resources;
• Single Service desks already introduced in the expansion
process;
• Approval of 202 Lists of Personnel since 2007, including
those from the 128 districts;
• Process of decentralization in implementation;
• Improving of the efficiency and financial management of the
state, namely through the introduction of SISTAFE and its
electronic application;
• Introduction of information systems in the whole nation as a
way of promoting the increase of internal efficiency;
• Betting in the systems and innovation technologies, based
on GovNet (the Government Electronic Network)
Weaknesses
• Insufficient human conditions, techniques and materials
to ensure effective implementation of the legal
documents and methodologies created, and as well as
the process of decentralization and devolution;
• Number of employees and state agents with technical
training and higher education is still insufficient;
• Concentration of the most qualified Public
Administration staff in the Central Government of
Maputo City;
• Reduced coverage of internal audit and control is still
insufficient;
• Anti-corruption legislation is not comprehensive;
• Laws concerning misappropriation of funds or property
of the State outdated;
• Poor coverage of technological infrastructure and
information systems at the local level;
• Effective systems of evaluation, monitoring and control
still incipient;
• Financial restrictions that prevent the execution of many
of the initiatives.
Opportunities
• Economic growth of the country and greater ability to
generate and collect revenue internally;
• Ability to attract external funding and of technical and
political support fruit of the outcome and the definition of a
clear vision for the development;
• Active participation of the population in the governance of
the country through the open and inclusive presidencies;
• Increasing utilization of information systems and
technologies in the provision of services to citizens and the
Threats
• High weight of foreign aid component in the state
budget;
• Contraction of the economy at global and national level,
which could jeopardize the implementation of some
programs of modernization and development of public
administration;
• High illiteracy Index;
• Pandemic of HIV / AIDS and the impact on resource
consumption in the country and revenue generation;
17
promotion of internal efficiency;
• Adhesion of the country to international organizations and
the adoption of their legal instruments as the African Charter
on Values and Principles of Public Service that enhances
and directs the public administration of each country for
steering the rendering of quality service provision to citizens;
• African Charter on Democracy, Elections and Governance;
• Implementation of a program of technical and vocational
education in the country that will contribute to the success
of the component of professionalization;
• Young population, amenable to rapid absorption of a digital
culture, enabling a leap of development in a short period.
• Lack of transport, communications and energy
infrastructure;
• Need for large investments given the size of the
country’s and population dispersion;
• Civil servant running away to the private sector and non-
governmental organizations.
The ERDAP through its components and their areas of Action, presented in Chapter 4 as well
as the initiatives that will corporate it, cited in the Action Plans, aims to address the
weaknesses detected, bypassing the external threats to the AP and taking advantages of the
strengths and opportunities of the internal and external context.
18
Cabo Delgado
10.322 (6%)
Nampula
20.942 (12%)
Zambézia
14.637 (8%)
Inhambane
13.965 (8%)
Maputo Cidade
37.108 (21%)
13.287 (7%)
Manica
11.488 (6%)
Tete
Niassa
10.666 (6%)
Gaza
20.129 (11%)
12.331 (7%)
Sofala
Maputo Província
15.508 (8%)
1.3. THE PUBLIC ADMINISTRATION – MAIN INDICATORS
1.3.1. Characterization of Civil servant
The Mozambican public administration conglobated according to the II Annual Statistics a
total of 179,383 civil servant. Its sector-based and geographical distribution, as well as a
breakdown by gender, age and level of qualifications provides a set of basic relevant
information for the definition of strategic guidelines.
Geographic Distribution
Civil servant are distributed by the Central Government, with a concentration in Maputo City
and are comprised of 24,978 employees (11%), and by the Local Public Administration
which has 154,405 employees (89%) who are assigned to provincial and district capitals.
The territorial distribution of Central and Local Public Administration is expressed by the
following figure.
Figure 5 - Distribution of Civil servant by Provinces
Despite the distribution of civil servant throughout the country, there is a higher
concentration, measured by the number of employees according to the number of
inhabitants in Maputo City, by the presence of the Central Government, and in the other
provinces of southern Mozambique.
19
The graph below shows that in the northern provinces of the country, with particular
emphasis on Zambezia and Nampula with a high number of inhabitants, the number of civil
servant for every 100 inhabitants is below the national average.
Graph 1 - Number of Civil servant per 100 Inhabitants
Additionally, it is verifiable, a higher concentration of employees of Local Government in
provincial capitals. The provincial capitals concentrate on average about 36% of the civil
servant pertaining to the province (excluding Maputo City). It is worth to highlighting the
cities of Beira and Matola and concentrate more than 50% of civil servant of Sofala and
Maputo Province, respectively.
Sector-Base Distribution
Civil servant, although distributed by the various sectors of the economy are more
concentrated in key areas for the sustainable development of country: Education, Health,
Justice and Agriculture.
Despite deficiency in education compared to the existing needs it concentrates more than
50% of civil servant.
.
Graph 2 - Civil servant by Sector of Activity
0,52
0,54
0,61
0,77
0,82
0,85
0,97
0,98
1,01
1,32
2,92
Zambézia
Nampula
Cabo Delgado
Tete
Manica
Sofala
Inhambane
Gaza
Niassa
Maputo Província
Maputo Cidade
Educação55%
Saúde14%
Agricultura3%
Justiça2%
Outros26%
Average of the country = 0,88
Legend
Others 3%,
Justice 2%,
Agriculture 3 %,
Health 14%
Education 55%
20
Distribution by Age and Gender
The majority of civil servant are still male, about 66.1% which represents 118,609
employees. With regard to age, over 50% of employees are between 26 and 41, as shown in
the figure below:
Graph 3 - Age Pyramid of Civil servant
Men Women
The gender imbalance is more outstanding in the provinces of the north and centre of the
country, as is visible in the figure below.
Graph 4 - Civil servant by Province and by Sex
In red: are women and in blue are Men
6.043
24.788
21.882
11.356
24.294
13.531
7.132
4.984
4.599
4.364
15.190
14.515
6.830
10.508
5.370
2.219
1.159
619
18-25
26-31
32-37
38-41
42-48
49-54
55-59
60-65
>65
Idade Mulheres: 60.774 (33,9%)Homens: 118.609 (66,1%)
74% 79% 77% 72% 69% 73% 68%59% 55% 56% 58%
26% 21% 23% 28% 31% 27% 32%41% 45% 44% 42%
Niassa Cabo Delgado
Nampula Zambézia Tete Manica Sofala Inhambane Gaza Maputo Província
Maputo Cidade
Mulheres Homens
21
Level of Qualifications
The qualification of civil servant is a key factor for the promotion of sustainable
development. In Mozambique employees with elementary skill level represent 24.2% and of
the basic level are the majority with 42.0%. Employees with medium and higher training
represent 25.7% and 8.1%, respectively.
Additionally, in 10 of the 11 provinces of Mozambique the percentage of employees with
higher education is still below the average 8.1% of the country, since the most qualified
employees are concentrated in Maputo City (about 57% of employees).
Graph 5 - State Employees and Agents by Province and by Level of Qualification
1.3.2. Evaluation of Services Provided
Satisfaction Evaluation Research of Public Services
The study was conducted in 2009, covering 12 Public Administration services, namely:
1. Licensing and certification of commercial activity;
2. Commercial registration;
3. School enrolment;
4. Registration of birth;
5. Criminal Record;
6. External consultations in hospitals;
7. Taxes Services - Income Tax of Individuals (IRPS); Income Tax of collective people
(IRPC), Value Added Tax (VAT);
8. Identity cards Emission Services;
26% 22% 27% 23% 20% 18% 24% 24% 23% 21%28%
47% 59% 48% 54%50% 49% 41%
49%43%
36% 21%
23%15%
20% 19%28% 29% 29%
24%30%
35%
29%
4% 4% 5% 3% 3% 4% 6% 3% 4% 8%
22%
Niassa Cabo Delgado
Nampula Zambézia Tete Manica Sofala Inhambane Gaza Maputo -Província
Maputo -Cidade
Superior Médio Básico Elementar
Legend: Blue -Higher, Red -Medium, Grey -Basic and Black- Elementary
22
9. Licensing of Contractors;
10. Issuance of Right to use and exploit Land (DUAT);
11. Licensing of touristic activity;
12. Driving licenses Issuing Services.
In this universe, 72% had knowledge of the Reform and 56% had "Good" or "Very Good"
opinion of its impact.
While for services with significant improvements, according to the perception of the
surveyed, it highlights the services provided in SSDs, the distribution of school books and
the number of vacancies in Primary Schools of 1st Grade (PS1), Primary School 2nd Grade
(PS2) and Complete Primary School (CPS) .Furthermore the consultations in hospitals is
registering improvements in terms of waiting time, cleanliness and hygiene.
Table 1 – Services with Greater Perception of Improvement by the surveyed
Services % of the surveyed who responded “Improved”
1. Services Rendered at the SSDs 83,6%
2. Free Distribution of school books 80,4%
3. Vacancies in PS1, PS2 and CPS 76,3%
4. Notary Services 72,5%
5. Hospital Services 69,7%
Inversely, the services that according to this study reported a lower perception of
improvement were of the provider of the entrepreneur, Clearance from the Administrative
Court and the setting of retirement allowance.
Table 2 - Services with Lower Perception of Improvement by the surveyed
Services % of the inquired which responded “is the
same” and it has “Deteriorated”
1 Provider of Entrepreneur 66,4%
2 Clearance from the Administrative
Court
59,8%
3 Setting of retirement allowance 55,6%
4 Promptness in trials 55,1%
23
5 Procedures for Opening Companies 55,1%
Other important conclusions that derive from the respondents to the study include:
− 56.8% consider that there has been decentralization in the public sector;
− 41.3% consider that the impact of restructuring want beyond the expectations in
some institutions;
− 71.6% know the Single Service desks;
− 85.8% consider that public services have improved their performance;
− 58.7% have not heard of Electronic Governance;
− 49.2% have a good image of the governance of the country;
− 68.5% consider that with the introduction of SISTAFE the public financial
management have improved;
− 70.3% think that with the introduction of new regulation of acquisitions, the purchase
of goods of public institutions have improved;
− 63.7% of employees report not having received specific training in their field of work;
− 93.2% of trained officers consider that this is contributing to the improvement of
quality of their work.
Evaluation Research of Public Services Satisfaction
Held in 2009, aimed to access the degree of satisfaction of citizens with regard to public
services at the national level, based on catchment of the perceptions and expectations of
"customers" (citizens and Companies) rendering to public services. It focused on an effective
sample of 9.465 interviewed people in all provinces of the country, and at the level of
Provincial Directorates, Hospitals, Schools, Registry Offices, Notary Offices and of Licensing
Centres and Single Service Desks (SSDs). In sector-based terms, it was analyzed the
services of the following sectors: Agriculture, Education, Industry, Trade, Tourism, Home
Affairs, Justice, Housing and Public Works, Health, and Transport and Communications.
Table 3 - Most Important Aspects for the Satisfaction of Citizens and Companies
Considered Aspects Nº of times considered “Extremely
Important”
1 The services are done in the promised time 22,2%
2 The Response Time to Administrative work 21,5%
3 The Civil servants correctly annotate the
information
21,0%
4 Documents issued are correct 20,5%
5 Confidentiality of information provided 19,6%
24
Considered Aspects Nº of times considered “Extremely
Important”
6 Waiting time in order to be attended 16,8%
7 The forms and documents are easy to read and
fill in
16,0%
8 Facility to make complaints when necessary 15,9%
9 The charged price for the services 13,0%
10 The Information of the booklets and posters is
clear and simple
11,8%
11 The information of the booklets and posters is
correct
11,2%
The survey confirmed the importance raised by the users of public services in the
component of time – compliance with deadlines and reduced time of administrative work,
as well as the absence of errors and preservation of confidentiality.
Table 4–Aspects in need of improvements
Considered Aspects Nr. of time classified as “Very Dissatisfied”
(0 and 1 on a scale of 0 to 5)
1 The service to be done in the time
promised
11,6%
2 The Response time to Administrative
work
11,2%
3 The facility to make complaints when
necessary
10,5%
4 The Information of the booklets and
posters is clear and simple
8,2%
5 The Information of the booklets and
posters is correct
7,4%
6 The civil servants correctly annotate the
information
7,2%
7 The price charged for services 7,0%
8 The forms are easy to read and fill in 6,6%
9 Confidentiality of information provided 6,5%
10 Documents issued are correct 6,3%
As for the actual performance of services as perceived by citizens and companies, the time
aspects and easiness in making complaints were considered the most critical and therefore
being the priority areas of action.
25
In Parallel, the research conducted at single Service Desks levels, made it possible to
identify which services are the most sought by citizens, and what are the levels of
satisfaction – in view of specific services and transversal aspects of rendering service.
Graph 6– The Most Sought Services
The most sought services in the SSDs are the licensing and certification of commercial
activity, followed by notary services, Business Registration and School Enrolment.
Licenciamento e certificação de
actividade comercial
29%
Notariado16%
Registo comercial
15%
Matrícula escolar
9%
Emissão de certificados
4%
Licenciamento de turismo
4%
Emissão de Bilhete de Identidade
4%
Emissão de NUIT3% Outros
16%
Emission of NUIT: 3%, Emission of ID: 4%, Licensing of Tourism: 4%, Emission of Certificates: 4%, School
Enrolments: 9%, Commercial Registrations: 15%, Notary Services: 16% and Licensing and Certification
of Commercial Activities: 29%
26
Graph 7 - Degree of Satisfaction with Aspects of Care
Regarding the degree of satisfaction of citizens and companies, it shows that most surveyed
people claim to be satisfied or very satisfied with the services in the SSDs. Still, with a view
to improvement, it appears that the time of completion of service - response time for
administrative work and waiting time to be attended - are the main concerns, as well as the
"dynamism of the employee", must therefore, be the aspects that deserve special attention.
1.3.3. International indicators
Business Environment
The simplification of processes and procedures operated by Mozambican Public
Administration has been working efficiently, most notably the creation of conditions that
favour private enterprise initiative.
The reforms undertaken by Mozambique in recent years have allowed the country to ascend
several positions in the categorization on business environment (ranking of Doing Business)
and currently at 126th position and being 12th country with strongest growth in the last 5
years.
0% 10% 20% 30% 40% 50% 60% 70% 80% 90%100%
Tempo de espera para ser atendido
Tempo de resposta do expediente
Simpatia
Dinamismo do funcionário
Apresentação do funcionário
Domínio dos assuntos
Soube ouvir as suas necessidades e preocupações
A conservação e limpeza da instituição
Muito insatisfatório Insatisfatório Nem Insatisfatório/ Nem Satisfatório Satisfatório Muito Satisfatório
Conservation and Cleanliness of the institution Learned to listen to their needs and concerns Domain affairs Presentation of the employee Dynamism of the employee Sympathy Response time of the administrative work Waiting time to be attended Very dissatisfactory, dissatisfactory, neither dissatisfactory, nor Satisfactory, Satisfactory, Very Satisfactory
27
Graph 8 – Comparative analysis of Ranking Doing Business 20112
According to the "Doing Business 2011" Mozambique is the eighth country of the
Community of Southern African Development Community (SADC), in terms of business
environment and the second country of the Community of Portuguese Language Countries,
just after Portugal. It is worth highlighting the positions obtained in terms of facilitating the
opening of a business and investment protection.
Transparency
Actions to reduce the incidence of corruption in public administration have been developed
lately, and these results already visible in the improvement of the position of the country in
the Corruption Perception Index (CPI) prepared by Transparency International Organization.
The CPI is annually calculated and varies between 0 (very corrupt) and 10 (very transparent).
From 2009 to 2010, the perception of corruption in the country was reduced (the index
increased from 2.5 to 2.7), permitting the rise from 130º to 116º place in the world ranking.
Nevertheless, the position of the country is still far from the desired, so one of the areas of
ERDAP will be the fight against corruption, continuing the actions already implemented in
the framework of the Global Strategy for Public Sector Reform and the Strategy to Combat
Corruption.
2 Official Name of World Bank Report.
34
52
76
126 128 133
157 163
África do Sul Botswana Zambia Moçambique Tanzania Malawi Zimbabwe Angola
Média África Subsaariana
28
Graph 9-Evolution in the Ranking Corruption Perception Index (2004-2010)
Electronic Governance
The networking connection of Public Administration, through GovNet, and the opening of the
Website of the Government constitute two of the main achievements of the country in the
field of Electronic Governance.
Table 5 – Mozambique In the index of the Electronic Governance and participation 2010
(eGovernment and eParticipation 2010)
2005 2008 2010
eGovernment Development Index,
Including:
146º 152º 161º
Online services 124º
Telecommunication Infrastructure 169º
Human capital 170º
eParticipation Index 30º 25º 97º
The analysis of international indicators, namely the eGovernment Index calculated by the
United Nations, reflects these efforts, but also allows seeing that there is still a significant
way to go in the modernization of public administration services.
In fact, although Mozambique is only placed in the 161st position of eGovernment Index
2010, it appears that on the sub-component online services, the country rises to 124th
position, whereas the Telecommunications Infrastructure and Human Capital sub-
components are the ones that require greater attention.
2,8 2,8 2,8 2,8 2,6 2,5 2,7
9097
99
111
126 130
116
2004 2005 2006 2007 2008 2009 2010
Índice Posição
Index Position
29
In parallel, the 97th position in eParticipation expresses success in the use of the internet to
provide information to citizens, interaction with stakeholders and involvement in decision-
making processes. However, the decline in this measure – which Mozambique was, in 2008,
the most positioned African country - reflects the difficulty in maintaining a dynamic of
innovation and that it pretends to resume.
30
STRATEGIC GUIDELINES
The Strategy of Reform and Development of Public Administration consolidates the
transformations since 1975, with particular focus from 2001, the year in which the Global
Strategy Reform for Public Sector was launched, in the sense of approximating the reality of
Public Sector the vision described in the 2025 Agenda.
In this context, ERDAP defines a 15-year vision that will guide the implementation of
activities of various sectors, structures and people, ensuring joint efforts around common
goals. In the field of consolidation of the Mozambican public administration it is a strategy of
consolidation and going deep into the results already obtained, namely with the
implementation of the Five-Year Program of the Government and the Global Strategy Reform
for Public Sector 2001-2011.
1.4. Vision and Mission
Vision
"A citizen-cantered Public Administration, promoting the development and devoted to
rendering of quality services."
Mission
"Ensure the provision of quality public services through qualified and motivated human
resources, efficient processes and integrated systems, based on a rigorous and transparent
financial management and in a consolidated structure, accountable and integrated and
coordinated action."
1.5. Values
Values guide the performance of public administration in pursuing its vision and mission and
must be observed by civil servant in the scope of its activity.
Figure 6 - Values
Continuity
Susteninable
Development
Modernization
VALUES
Meritocracy Imparciality
Accountability
Uniqueness
Profissionalism
Culture of exellent
service
31
The concepts that embody each value are shown below:
Culture of
Excellent Service
Citizen, Private Sector and Civil Society as the centre of
performance of Public Administration
Access to information, proximity and convenience
Meritocracy Valuing the attained result by competency
Impartiality Non-discrimination treatment, gender balance
Ethics and deontology, transparency and anti-corruption
Professionalism
Qualifications and development of competencies
Diligence and work culture
Civility and courtesy in the relationship with users
Accountability Results orientation and ability to execute
Productivity and performance culture
Continuity
Institutional Reinforcement
Document and knowledge management
Institutional Memory
Uniqueness Common purpose, coordinated planning and concerted action
Mobility
Modernization
Innovation and simplification of procedures Innovation
Information and Communication Technologies
Efficiency
Sustainable
Development
Sustainable Development • Promotion of economic
development, human and social
1.6. Strategic Objectives and Components Development
The strategic objectives identify the main guidelines of the institutions of the public sector,
in the areas which are transversal areas, in the next 15 years, clarifying the focus of
performance of Public Administration.
32
Figure 7 - Strategic Objectives
The persecution of the Vision, Mission and Strategic Objectives, described imply the
definition and implementation of actions by various agents of Public Administration. These
actions are framed in the development components and are detailed in areas of action.
Thus, the development components correspond to a set of guidelines aimed at fulfilling a
strategic objective. The basic components are complemented by transverse components
that aim to support and stimulate the implementation of the Plan. Finally, the areas of
action detail the components in terms of activities fragmented and similar among
themselves.
Adopting a Public
Administration of
qualified technicians
Approximating the
Public
Administration to
Citizens
Improving the
quality of services
Strengthen the
organization of
Public
Administration
Promote and
disseminate an
integrated culture in
the society and PA
Consolidating the
use of information
and communication
technologies
Monitor the
execution and
measure results
Estrategic
Objectives
33
Figure 8 - Strategic Objectives and Correspondents Components
Component 1
Professionalization of
employees and Agents of
the State
Adopt the Public Administration with qualified technicians - motivated employees and agents of the state, in adequate number, accountable and recognized according to their performance in the context of equal treatment and opportunities for the rendering of services.
Component 2
Descentralization and
Devolution
Bring the Public Administration closer to the citizen - Strengthening the role of the District while pole of development, through decentralization of duties, capabilities and resources and technical assistance by part of the central organs.
Component 3
Improvement of Quality
of Services
Improve the quality of services - performance commitments, through simplification of processes and procedures, integration between sectors and reinforcement of infrastructures.
Component 4
Consolidation and
Coordination of the
Structures of PA
Strengthen the organization of public administration - consolidation of the regulatory base, functional and human and of knowledge management, ensuring continuity and institutional memory and promoting integrated action according to the principle of Unitary State.
Component 5
Strengthening Integrity in
Public Administration
Promote and disseminate a culture of integrity in the society and in
Public Administration – Reinforcement of an inhibiting environment
of corruption practices, and ensure that state resources are directed
towards combating poverty and for the development of the country.
Component
Transversal A
Modernization,
Technology and
Innovation
Consolidate the use of Information and communication technologies
–improvement of services delivery, approaching the central and local
organs, integrating knowledge across sectors and supporting
streamlining of procedures.
Component
Transversal B
Monitoring,
Communication and
Evaluation
Monitor the execution and measure results – Promptness in
correcting of deviation, communicating on a regular basis the
accomplishments and their impacts and encouraging the sharing of
good practices and continuous improvement.
34
1.7. MAIN GOALS OF ERDAP
The Mozambican Government is strongly committed to the continuous improvement of the
service provided to the citizen and the whole environment associated to it as a lever of the
development of the country
Assuming this aspect as a goal, the ERDAP identifies a set of indicators of reference sets
concrete targets for each period of five years or for duration of each of the action plan.
The indicators identified allow strengthening the commitment and analyzing the impact of
the implementation of ERDAP in Mozambican society as a whole and, in particular, in Public
Administration. For this purpose indicators were defined whose sources are highly
referenced international institutions.
.
Table 6 - Impact indicators of ERDAP and respective targets
Impact Indicator Base Value Targets
2014 2019 2024
Degree of satisfaction of users
Source: Research Evaluation Satisfaction 2009
Reasonable
(2,9) 3,2 3,58
Good
(4)
Index of Obtunding Services
Source: Research Evaluation Satisfaction 2009 81% 84% 88% 92%
35
Perception of performance improvement of
public services by employees
Source: Survey of Opinion of Reform 2009
94% 94% 94% 94%
Degree of satisfaction of Civil servants
Source: to be defined ---- ---- ---- ----
Evolution of Business Environment
Source: Doing Business 2011 126 116 106 96
Evolution of Electronic Governance
Source: UN E-Government Survey 2010
0,2288
(161)
0,2782
(≈144) 0,3101
0,3420
(123)
Evolution of electronic participation (e-
participation)
Source: UN E-Government Survey 2010
0,1143
(97)
0,1286
(86) 0,2143
0,3000
(39)
Degree of Transparency
Source: Corruption Perception Index 2010 (TI)
2,7
(116)
3
(101)
4
(66)
5
(46)
Consolidation of democracy
Source: Democracy Index 2010 (EIU) 4,9 5,2 5,6 6
Regarding the direct evaluation of Public Administration and service to citizens, 4 indicators
were defined and their respective goals were set:
Degree of Users Satisfaction is currently rated as "Reasonable" (rank 2.9), should
develop gradually to "Good" (rank 4), and in the interim period it must reach the
current expectations of users (3.58);
Index of Services Availability, the average value obtained in 2009 was 81%, with the
province of Gaza obtaining the highest score 92%, which was set out as the national
target for 2024;
Perception of Performance Improvement of Public Services by civil servants and State
agents, Evaluated as positively by 94% of Civil servants in the Survey of Opinion of Public
Sector Reform held in 2009, a score to be maintained or increased.
Degree of Satisfaction of Employees and State agents, indicator to be evaluated on a
regular basis by an independent entity in the coming years, with a positive and
growing development goal;
Regarding the international indicators there are considered:
36
Development of the business environment, Mozambique did have good performance
having reached the 126th position in the report "Doing Business 2011", positioning
itself between the countries with the greatest growth in the previous five years. The
goal is to continually improve on this indicator down to the 1st hundreds (on the
average Latin America, North and the Middle East of Africa rate 96th place);
Evolution of Electronic Governance, measured in the e-Government Survey of the
United Nations, in which Mozambique reached 0.2288 in 2010 (161th place) which
contradicts the upward improvement tendency experienced to date. In 2014, the
country expects to match the average of countries in the East Africa sub-region
(0.2782), and the highest score targeted for 2024, set up at 0.3430;
Development of Electronic Participation (e-participation), an indicator in which
Mozambique scored high between 2005 and 2008, ranking as number one in Africa
and 30th-25th globally. The goal for this indicator is to reach the top ten of African
Countries in 2014. The current African reference score is 0.3000 belonging to
Tunisia who ranks number one.
Level of transparency of the country, measured by the Corruption Perception Index of
Transparency International. In 2010 Mozambique reached a value of 2.7 (116th out
of 178 countries). The target for 2024 is to reach a positive value (equal of greater
than 5) and position itself between African countries with a good reference (currently,
only Botswana, Mauritius and Cape Verde have values greater than 5);
Democratic Consolidation, measured by the Democracy Index of the Economist
Intelligence Unit. In 2010 Mozambique showed a value of 4.9 (99th among 167
countries) which ranked it as the hybrid regime (under 6). The goal for 2024 is to
reach a value of 6 and advance to the next level.
1.8. Critical Factors of Success
The success in the achievement of the strategy defined by ERDAP has subjacent a joint set
of critical factors that must be considered in all the phases of implementation, namely:
• Ensuring effective leadership;
• Strengthening of competencies;
• Strengthening of Schools of Government;
• Financial Capacity;
• Monitoring of the implementation.
The leadership in the framework of ERDAP presents two distinct perspectives: i) institutional
leadership, and ii) the individual leadership ability.
Ensuring Efective Leadership
37
The leadership of ERDAP falls within the Government competences through the Ministry of
Public Service (cf. Presidential Decree No. 13/2007 of 16 October).
However, sector-base leadership plays a critical role in the actual implementation of ERDAP.
1st it should ensure that sectors are in the driver seat of the overall process. Furthermore,
effective leadership is paramount in the processes of mobilizing human and material
resources and in ensuring key processes of planning, management, monitoring and
evaluation of progress and the achieved results.
Additionally, a critical success factor it to ensure the critical leadership competences and
confidence of senior leaders and managers particularly with regard to the management of
human resources and other public affairs.
Effective leadership competences will constitute the building blocks for an effective work
culture based on accountability for the implementation and results, high levels of motivation
and active involvement of all civil servants and State agents.
The Management of ERDAP is the responsibility of all the sectors of Public Administration at
all levels particularly in the development of abilities and competencies for its successfully
implementation.
Political and methodological oversight of ERDAP is under the responsibility of the Ministry of
Public Service, with particular emphasis to the cross-cutting issues.
Strengthening Competences
38
Figure 4 – Key Competencies to Ensure
Duties to be performed:
Ensure the implementation of policies, strategies and Transversal programs
integrated into the process of administrative modernization, promoting integration
with sector-based programs and the Global strategy of the Government;
Ensuring integration and promote operational alignment between the different
organs of public administration in the implementation of initiatives aimed at
modernizing the PA;
Manage the implementation of the modernization process of the PA and initiatives in
a stricter manner;
Promote integrated measures in order to promote professionalism, rationalization of
processes and procedures and change of attitudes in order to improve the provision
of service citizens;
Accompany and monitor the initiatives and indicators related to the process of
modernization of PA and its impact on the Mozambican society;
Communicate the process of modernization of the PA;
Promote auscultation and ongoing consultation of the civil society, private sector
entities and foreign entities and cooperation partners on matters related to the
performance of the Public Administration and Public Service;
Identify and study in close liaison with the various sectors of services and
representing organs civil society and the obstacles administrative modernization,
proposing concrete measures for solving this problems.
39
A specific training in Public Administration is essential for the development of Mozambican
Public Administration: it complements university and other levels of training that civil
servants already have, and prepares them to effectively respond to the context of public
administration requirements and culture, thus improving their ability to deliver quality
services.
In this context, special emphasis must be given to the development Schools of Government
as well as vocational institutions for training professionals to ensure the development of
critical public administration competencies.
It is therefore important to ensure that Schools of Government have the capacity to deliver
transversal vocational training programs, to all sectors, all geographical locations and to all
hierarchical levels of Public Administration.
The existence of financial capability is key in order to ensure implementation of ERDAPs
initiatives and projects.
The source of funding of ERDAP is the State Budget that can be supported by additional
funding mechanisms.
In this sense accountability becomes a central issues, which has been one of the goals of
governance in Mozambique, fostering stewardship in the use of public resources, ensure the
generation of impacts and improvements in social conditions.
The monitoring of implementation and assessment of impacts is critical, particularly in a
context of limited resources. It is necessary to "measure in order to develop", i.e. measure
for better management, ensure return of investment in terms of economy, efficiency,
effectiveness and usefulness.
The systematic monitoring of indicators and monitoring of project implementation is key not
Strengthening of Schools of Government
Financing Capacity
Monitoring of Implementation and Assessment of Impacts
40
only to assess the degree of implementation of ERDAP, but also to assess the evolution of
global indicators and the respective degree of goal attainment.
Figure 1 – Macro Objectives of Monitoring
The ERDAP is leveraged by a group of players (actors)
responsible for carrying out a set of defined initiatives.
It is important to continuously monitor the
implementation of initiatives;
The Evolution of Mozambique in the indicators of
impact of ERDAP is a way of promoting the image of
Country both nationally and internationally contributing
to attract investment;
The major beneficiary of ERDAP and of the
development of Public Administration is the citizen,
therefore its essential to promote its participation
throughout this process, as well as measure and monitor
their levels of satisfaction.
Degree of
implementation
of initiative
Involvement
of the
Mozambican
society
Evolution in
the Indicators
the of Impact
41
The monitoring process should serve not only to assess the degree of attainment of set
goals, but also to assess the functioning of the entire structure in a continuous learning and
improvement process.
2. Components of Development of Public Administration
The strategy for the development of Mozambican Public Administration is based on a set of
seven components. Of the seven components, five are vertical and reflect the main areas of
performance of Public Administration in the next 15 years:
− Component 1 – Professionalization of Civil servants and State Agents; Component 2
– Decentralization and Deconcentration;
− Component 3 – Improvement of Service Delivery;
− Component 4 – Consolidation and Coordination of the structures of Public
Administration;
− Component 5 – Enhancing Integrity in Public Administration.
The two transversal components represent the “accelerators” of these strategies,
constituting the levers of the strategy, and they are:
− Transversal Component A - Modernisation and Technological Innovation
− Transverse Component B - Monitoring, Evaluation and Communication
The seven components of ERDAP are in turn broken down into areas of performance which
express the specific aspects of performance and which will be materialized through a set of
strategic activities.
Finally, each area of performance is connected to one or more indicators of performance
that allow the measuring of the impact of implementing them.
42
Figure 2– Development Components
Professionalization of Civil servants
and State Agents
1.1. Empower Civil servants to perform their duties
1.2. Consolidate HR management tools
1.3. Strengthen meritocracy and recognize
performance
1.4. Train leaders in PA 1.5. Rationalize the allocation of HR
1.6. Motivate HR of the State
1.7. Ensure equal treatment and opportunities
Decentralization and
Deconcentration
2.1. Bring government services closer to the Citizen
2.2. Reform and empower local authorities
2.3. Attract qualified technicians to the Districts
2.4. Strengthen the decentralization of financial
resources
2.5. Support the development of local municipalities
2.
Improvement of the Provision of
Services
3.1. Further the simplification of processes and
procedures
3.2. Promote the integration of service delivery
3.3. Ensure proper conditions for service delivery
3. Consolidation and Coordination of
the structures of PA
4.1. Promote the continuity of public service
4.2. Ensure the preservation of institutional memory
4.3. Improve coordination of planning and execution
between sectors
4.
1.
Components:
43
2.1. Professionalization of Civil servants and State Agents (Component 1)
Provide the Public Administration with qualified technicians
2.1.1. Background: Achievements and Progress
The transformation of public administration in Mozambique is based mainly on the capacity
and attitude of its employees. In this context, this has been an area of focus since 2001 in
the framework of the Global Strategy Reform for Public Sector, with particular emphasis on
Phase II of the Reform and after the creation of the Ministry of Public Service.
In retrospect the following have been achieved since the implementation of public sector
reforms global strategy:
Creation and operation and expansion of Schools of Government, IFAPAs (2001) and
ISAP (2004) as institutions responsible for vocational education and training of civil
servants and State agents.
Approval of the National System of Human Resource Management (2007), adjusting
it to the new challenges of public service and features, among others, the sub-
systems of careers and remuneration, information of Personnel and training in Public
Administration;
Approval and implementation of the Mid-term Pay Policy (2008), including the
localization allowance;
Approval, review and implementation of various human resources management
regulations, among them the e-SIP (2007), the Career and Remuneration System
(2009) and Performance Management System (2009);
Review of the General Statute of Civil servants EGFAE (2009) and the its respective
rules and regulations (2010);
Realization of the general census of civil servants and state agents and development
of the Statistical Annual Yearbook (published in 2008 and 2010);
Development of cross-cutting strategies in the Public Service (2009), in areas such
as combating HIV & AIDS (2009), Gender (2009), and Disabled People (2010);
Approval of Housing Policy and Strategy (2011);
Approval of the Administrative Procedure Act (2011).
Strategic
Objective
44
Figure 7 - Timeline of the Achievements and Progress
The several initiatives undertaken have constituted together a good foundation for the
consolidation of a body of capable civil servants able to deliver quality services to the
costumers of public administration (citizens and private companies), with emphasis
particularly in the regulatory, capacity development and monitoring dimensions.
2.1.2. Current Situation: Challenges
The Public Administration in Mozambique comprises an universe of 179.383 Civil servant
and State agents, according to the 2nd Edition of the Statistical Yearbook of Public
Administration (published in 2010), and as mentioned earlier the developments in the field
of professionalization of Public Service have been remarkable.
Nevertheless, a set of significant challenges still need to be addressed, and they are:
Ensure gender balance in public Service, given that 2/3 of the civil servants were
men (66.12%) according to 2009 statistics;
Increasing the level of education of Civil servants and State Agents, given that only
8.1% of employees (2009) had higher education, this number being strongly
influenced by the particular situation of Maputo City, where 22. 2% of the employees
have at least a “licenciatura” degree;
Reinforce training in Public Administration, which is complementary to the university
training and which is professional, preparing employees for the day-to-day work in
areas such as human resource management, planning, management of State
inventory and financial management;
Link effectively career advancement to merit and experience, encouraging good
performance and the demand for specialized training in Public Administration;
Strengthening leadership competences, particularly in the component of human
resource management and supervision, and accountability for delivering specific and
2001-04
2007
2008
2009
2010
• Mid-term pay policy
• Career and Remunerations System
• SIGEDAP
• EGFAE and Rule and Regulation
• Transversal Strateges in PS
• Statistical yearbook
• HR Management System E-SIP
• Nacional System of HR Manament
• Creation of IFAPAs
and ISAP
45
set results, staff motivation, monitoring and evaluation of program implementation in
view of set objectives.
Planning the development of human resources in various sectors, ensuring that
training is aligned with corporate objectives and tied up to concrete needs in the
framework of their competencies, thus contributing to add-value and job enrichment;
Strengthen accountability and avoid potential apathy, through enforcement of job
descriptions ("terms of reference") and performance appraisal;
Adapt the staff tables to the requirements of duties, avoiding situations of imbalance
between allocation of staff (overloaded structures and structures with lack of
personnel) and promoting mobility in the Public Service;
Implement a culture of results orientation and accomplishment of objectives through
the implementation and monitoring of SIGEDAP at various levels of the Public
Service;
Integrate the different existent systems of human resource management in different
sectors, in particular e-SIP, e-CAF and e-Folha (electronic payroll);
Ensure updated, reliable and complete information about human resources of Public
Administration, identifying the typology of needed information, creating routines for
updating and ensuring regular monitoring of data quality;
Ensure that all bodies of public administration have Human Resource Development
plans and proceed with its implementation;
Improve the recruitment process in the Public Administration to assess not only the
academic curriculum but also the competences and experience;
Preparing the transition to retirement of employees at end of career, in order to
promote their self-esteem and sense of usefulness and take advantage of their
knowledge and experience.
46
2.1.3. Development Strategy: Objectives and Intervention Areas
The areas of intervention of the development component "Professionalization of Civil
servants and State Agents" reflect a continuity of initiatives implemented in the framework
of Public Sector Reform.
Table 5 - Areas of Intervention of the Component Professionalization of Civil servants and
State Agents
Areas of Intervention
1.1. Empowering employees and State Agents for the performance of their
duties
Strengthen training in Public Administration through the Schools of
Government, as part of plans for developing competences aligned with the
effective needs of the local and central organs and their respective
competencies;
1.2. Consolidate instruments of human resource management
Ensure the integration and the quality of data in the human resources
information system, as well as monitor and evaluate the implementation of
the tool of human resource management recently created or revised.
1.3. Strengthen meritocracy and recognize performance
Recognize and reward good performance in the framework of results
oriented and management by objectives approaches, contributing to the
deepening of the work culture and productivity.
1.4. Train leaders in Public Administration
Strengthen the competences in leadership and management, through the
Schools of Government, disseminating examples of professionalism and
excellent performance for the respective employees and motivating the
effective and efficient use of resources at their disposal.
1.5. Rationalize the allocation of human resources
Planning the needs and adjust the number of human resources
professionals identifying the job requirements and occupational profiles of
each function, and promoting the mobility of civil servant based on
professional careers.
1.6. Ensuring equal treatment and opportunities
47
Areas of Intervention
Promote gender equality; ensure that there are opportunities for integration
of the disabled people and addressing the challenges of HIV & AIDS in the
Public Service through the implementation, monitoring and evaluation of
transversal strategies.
2.1.4. Performance Indicators
Performance indicators presented below, whose goals are references for the
implementation of each action plan, allow the monitoring and evaluation of performance of
Public Administration under the component Professionalization of the Civil servants and
State Agents.
Table 6 - Indicators of the Component Professionalization of Civil servant
Area of
Performance Performance Indicators
1.1
Annual number of employees trained by the Schools of
Government
Percentage of civil servant with Medium technical
professional training
1.2 Percentage of organizations of PA with Human Resource
Development plans
1.3 Percentage of organizations implementing the SIGEDAP
1.4 Percentage of managers trained in ISAP
1.5 Percentage of organisms with defined job descriptions
1.6 Percentage of Women in Public Service
Percentage of disabled people in the Public Service
2.2. Decentralization and Deconcentration (Component 2)
Bringing the Public Administration closer to the citizen
2.2.1. Background: Achievements and Progress
Strategic
Objective
48
The process of decentralization of public administration has been experiencing significant
achievements, aimed at transforming the district into the pole of development and into the
base of social and economic planning of the country. In this context, the following progress
is to be highlighted:
Approval and implementation of the Law on Local State Organs (LOLE) and its
respective Rules and Regulations;
Restructuring of the 128 District Governments, which will now run on an integrated
structure comprised by a minimum of 4 integrated district offices clustered on the
basis of each district characteristics, potential and needs;
The creation of 43 municipalities;
Creation of 128 District Consultative Councils, 397 Advisory Councils of
Administrative Posts and 1042 Local Authorities, ensuring community participation in
the planning of local development;
Establishing of the Framework for the Transfer of Functions and Competencies from
central to local authorities;
Approval of Mid-Term Pay Policy and, in particular, the location allowance;
Introduction of Investment Budget for Local Initiatives (OIIL), now the District
Development Fund (FDD), and the Investment Budget in the Districts;
Decentralization of funds for the roads, water, agriculture, education and health
sectors;
Deconcentration of Human Resources management competencies to Province and
District levels;
Progressive increase in funding from the State budget allocated to provinces and
districts;
Providing critical services at the provincial level (for example, issuing the biometric
passport) and district (issuing biometric identity card).
Thus, whether at the level of provinces or at the level of Districts, there has been a
continuous reinforcement of responsibilities and resources, bringing the decision and
provision of services closer to the beneficiary, the citizen.
2.2.2. Current Situation: Challenges
The process of decentralizing service delivery competencies requires the strengthening of
interventions undertaken so far.
Of particular importance is the Policy and National Decentralization Strategy which is under
preparation, and is expected to clarify the vision of the government on decentralization in
Mozambique and to bring a more integrated and consolidated perspective, so as to
49
generate synergies, rationalize resources and efforts put into decentralisation and shed light
into the path to follow in the framework of decentralisation.
Thus, the main challenges in this area include:
Approve and implement the Policy and National Decentralization Strategy;
Ensure equitable distribution of staff between Central and local levels to ensure the
representation of the state at all levels;
Attracting qualified personnel for Local Government Organs, through a combination
of monetary and nom-monetary incentives;
Improve the strategic and administration management of human resources at the
local level, in order to support the attraction, retention and development of native
staff, including on-going training of human resources, using mechanisms of distance
learning;
Strengthen the capacity for planning, organization, management and accountability
by part of staff and leaders of Local Government Organs, creating the conditions for
the transfer of a more significant financial resources and ensuring the sound
management of public funds;
Strengthen the decentralization of financial resources for Local State Organs,
ensuring that the deconcentration of competences is accompanied by the allocation
of the funding necessary to for the implementation;
Develop the capacity to generate revenues of the Local organs, which are
complementary to the resources transferred from the State budget and strengthen
their autonomy and capacity to perform their duties;
Ensure integration of the electronic network of local government Organs at the
district level, promoting integration and sharing of information, data and systems;
Supporting Local Organs in the use of information and communication technologies,
to enable the use of systems that support the provision of services or back-office
(e.g., e-SISTAFE);
Investing in infrastructure and equipment for the provision of services at the level of
local State Organs, in order to respond more effectively to the needs of the
population.
2.2.3. Development Strategy: Objectives and Area of Performance
The areas of intervention in the decentralization component aim to accelerate the process of
decentralization and deconcetration of competences and on the necessary capacity building
of Local State Organs in terms of human resources, infrastructure and budget.
50
Table 9 - Areas of Intervention of Decentralization Component
Areas of Intervention
2.1. Bringing government services close to the citizen
Continue the process of deconcetration of competences ensuring that
decision making is as close as possible to the citizen, identifying which
services to be decentralized and defining and implementing a program of
transfers of functions and associated resources.
2.2. Reform and empower Local State
Adapting the Provincial structures and consolidate the District structures
empowering them to provide public services, according to the
decentralization of competences, based on planning and efficient
management of resources.
2.3. Attracting qualified technicians for the Districts
Consolidate existing policies to encourage the mobility of qualified staff, at
the levels of retention, relocation and recruitment (development, career
development and performance Evaluation).
2.4. Examine thoroughly the decentralization of financial resources
Ensuring increased allocation of financial resources within Local State
Organs and municipalities which ensures the decentralization of
competences, ensuring the necessary control mechanisms.
2.5. Support the development of local governments/autarchies
Contribute to the improvement of public services provided by municipalities
through technical assistance conducted by Central Organs, without
compromising the autonomy of municipalities
.
2.2.4. Performance Indicators
The performance indicators presented below allow the monitoring and evaluation the of
performance of Public Administration in the framework of decentralisation component.
Table 10 - Indicators of Decentralization Components
Area of
Action Performance Indicator
2.1 Percentage of public services available at the District level as a ratio of
all services that should be available ;
51
2.2 Percentage of locally generated revenues (municipalities/local organs);
2.3
Percentage of civil servants and state agents with higher education
deployed at local level;
2.4 Percentage of State budget transferred to the provinces
Percentage of State budget transferred to districts
2.5 Average number of public services provided locally as a ratio of all the
services that should be provided
2.3. Improving the Provision of Service (Component 3)
Improving the quality of services
2.3.1. Background: Achievements and Progress
The interventions undertaken taken in this area since 2001 have emphasised citizen-
centeredness. In this context, actions focused on ensuring timeliness, access and
convenience in service delivery.
The following interventions are worth highlighting:
Creation of One-Stop-Shops and its expansion, both in terms of provinces (all
provincial capitals), or in terms of services;
Approval of Juridical Regime of the Simplification of Licensing of Economic Activities;
Reduction of time for issuing of critical documents, which includes:
o The Identity Card (from one year to 15 days);
o The Driving Licence (45 days to 15 days);
o Police Clearance Certificate (from 60 days to 5 days);
o Birth Certificate (from 10 to 2 days)
Reduction of waiting time for acknowledgement of the Administrative Court to less
than 30 days;
Reduction of the overall waiting time for admission in the Emergency Services and
External Medical appointments in public hospitals;
Design of a Monitoring and Evaluation System for the Business Environment Strategy
(in operation);
Installation in Provincial offices of a Software to survey User’s Satisfaction,
Installation in all One-Stop-Shops of Electronic Terminals to monitor customer
satisfaction;
Strategic
Objective
52
As a result of these and other interventions there have been an improvement in the quality
of services as indicated by citizens perceptions expressed through citizens satisfaction
survey undertaken in 2009.
In addition, interventions contributed to improve the ranking of the Country in the Doing
Business survey published by the World Bank, moving from 137th position in 2006 to 126th
in 2011, with a remarkable ratings of 65th and 44th for the categories facility of opening
business and protecting investors respectively.
2.3.2. Current Situation: Challenges
The obtained results encourage the continuation and expansion of efforts in the area of
service delivery. There are however challenges to be addressed, namely:
Concentrate services to reduce time and cost required for the citizen to gain access;
Expand the One-Stop-Shops both in terms of services offered and in terms of
geographic coverage;
Consolidate the change of attitude of the Civil servants before the citizen towards a
culture of service excellence in which the citizen is the "customer" and “raison
d'etre” of public services;
Increasing the responsiveness of service delivery, expanding and further improving
current provision standards towards standardization across the country;
Addressing the weaknesses identified in the 2009 customer satisfaction survey
particularly regarding access to certain services, the time of the service, meeting the
deadlines indicated to the user and the fair treatment of citizens, as well as the
disclosure of norms and standards of service;
Set performance targets and standards for public services, which are effectively
monitored and that are connected to the performance evaluation systems and of
career and remuneration, in order to institute orientation for results and stimulate
continuous improvement;
Implement regular mechanisms of evaluating service delivery by the "customers"
(citizens and companies), since the current forms of evaluation are predominantly
internal (self-evaluation by the Public Administration) and performed with reduced
frequency;
Improving working conditions in public services locations, at the level of
infrastructure and equipment, minimizing the situations where the existing means
53
affect the quality of services provided, the performance of employee and the services
to citizen.
54
2.3.3. Development Strategy: Objectives and Areas of Action
The areas of intervention in the component improving service delivery complement the
activities that have already been developed by various sectors in the process of Public
Sector Reform.
Thus, besides consolidating simplification of processes and procedures, reduction of waiting
time and expanding on the concept of One-Stop-Shops, the focus will be on defining and
implementing service delivery standards for each service and its continuous monitoring,
accompanied by greater evaluation of services by their receivers.
Table 11 - Areas of intervention of the Component Improvement of Service Delivery
Areas of Intervention
3.1. Simplification of processes and procedures
To continue the simplification of processes and procedures related to the
provision of public services, with a focus on provision of information, in
facilitating interaction, and reducing waiting time and increase convenience.
3.2. Promote the integration of Service Delivery
Disseminate the concept of Single Desk Service to other areas of the public
service in order to increase the convenience of services to citizens,
supported by the sharing and the circulation of information in the sectors and
across different sectors.
3.3. Ensure proper conditions for the Provision of Services
Ensure that infrastructure and equipment used in the provision of services
are appropriate, strengthening the capacity of public administration and the
civil servant and safeguarding the comfort and security of the citizens.
3.4. Define and monitor service standards
Adopt practices of continuous improvement by defining service standards
(attendance and response times, processing errors, etc.), Focusing on critical
services, ensuring its constant monitoring.
3.5. Evaluate the provision of services through their user
Complement the internal monitoring with greater and more frequent
inclusion of users in the process of evaluation of the quality of services
provided to them and setting goals to be achieved.
2.3.4. Performance Indicators
Performance indicators presented below, will allow monitoring and evaluating the
performance of Public Administration under the Component Improvement of Service
Delivery.
55
Table 12 - Indicators of the Component Improving Service Delivery
Area of
Action Performance Indicator
3.1 Number of processes and necessary documents by service
3.2
Average waiting time in services defined as critical
Number of services available in the Balcões de Atendimento Único
(BAUs)
Percentage of districts with (BAUs)
3.3 Percentage of infrastructures of services delivery whose rank according
to users is equal to or greater than 3
3.4
Percentage of services with service charters;
Percentage of services with the degree of implementation of service
charters above 95%
3.5 Percentage of services with degree of satisfaction equal to or greater
than 3
2.4. Consolidation and Coordination of Structures of Public Administration (Component
4)
Strengthen the organization of the Public Administration
2.4.1. Background: Achievements and Progress
One of the priorities of the reforms processes was the restructuring of ministries at the
central level. Main interventions in this context was a process called functional reviews.
Main achievements in this area were:
Strategic
Objective
56
Conducting functional analysis of all Ministries in order to ensure clarity in their
mandates, transferring competences, functions and resources of the Central Organs
to the Local Organs, and outsourcing of non-core functions;
Approval of 202 Tables of Personnel since 2007, including the 128 of the districts;
Approval 28 Organic Statutes since 2008;
Creation of the Ministries of Planning and Development, Science and Technology,
Public Service, of Combatants;
Restructuring of Ministries;
Revaluation of Inter-ministerial Commissions (from 41 to 19 in 2007);
Recruitment and appointment of Permanent Secretaries of Ministries through public
tender and signing of performance agreements;
Approval and implementation of the Strategy of Information Management and the
National System of State Archives (SNAE).
As a result of these and of other iniciatives, the central agencies have strengthened their
role as emitters of public policy, also creating the conditions for the gradual implementation
of decentralization to local organs.
2.4.2. Current Situation: Challenges
Following up on undertaken restructuring, it is important to consolidate the structures of
Public Administration by ensuring that agencies operate regardless of complicated changes
that may occur, acting on people, systems, laws, procedures and management of
documents.
The Improvement of the coordination of activities between the various Ministries is also a
priority, minimizing the tendency for the creation of "silos", especially with regard to
transversal matters.
Finally, the evolution of society and the decentralization process underway discourage the
definition of rigid structures, so the functional analysis and structural adjustments
undertaken should not be seen as concluded processes, rather, they should be open to
readjustments as needed to avoid the stagnation Public Administration. Under this
component the following challenges where defined:
Prioritise continually the rationalization of the administrative structures in order to
make it effective, efficient and less onerous;
Consolidate the structures of public administration in order to ensure that the
administrative structures of the State operate regardless of the changes in the
political power;
57
Create a regulatory basis, documentation and procedures that support the continuity
of Public Administration, so that changing of people does not lead to loss of
knowledge of how the public sector functions;
Separate clearly the positions of management and leadership with a technical
character of the positions of trust, ensuring stability, under the principles of
competitiveness and meeting objectives of performance;
Promote the ongoing adequateness of the structures of Public Administration, to the
challenges brought by the development of society and the increasing transfer of
powers to local organs, observing principles of rationality in view of activities to be
developed and available resources;
Strengthening the coordination of sector-based policies, especially in the transversal
components, avoiding compartmentalization of the activity of the Ministries.
2.4.3. Development Strategy: Objectives and Areas of Performance
The areas of intervention of this component are the result of activities undertaken within the
framework of the reform process, particularly with regard to the functional analysis and
restructuring.
Table 13 - Areas of Intervention of the Component Consolidation and Coordination of
Structures of Public Administration
Areas de Action
4.1. Promote continuity of public service
Ensuring the existence of a professionalized Public Administration with a
regulatory base, functional and stable in human terms of, which should be
the guarantee of the capacity of the provision of services, regardless of
changes of the holders of the public office.
4.2. Ensure the preservation of institutional memory
Consolidate the implementation of information management systems and
Archives in Public Administration and create conditions for its modernization,
promoting knowledge management and access to information by part of the
civil servant and the society in general.
4.3. Improve coordination of planning and execution between sectors
Strengthen the mechanisms of articulation and integration of sector-based
policies in planning and execution, in the phases of planning and execution,
assuming the various components of the Public Administration as being part
of a single entity that exists for a common purpose.
58
2.4.4. Performance Indicators
The performance indicators presented below, allow the monitoring and evaluation of the
performance of Public Administration in the process of Consolidation and Coordination of
the Structures of Public Administration.
Table 14 - Indicators of the Component Coordination and Consolidation of the Structures of
Public Administration
Area of Action Indicator of Performance
4.1 Basic Law of Organisation of Public Administration approved
4.2 Percentage of organisms that implement SNAE
4.3 Approval and Implementation of the National Development Strategy
2.5. Enhancing Integrity in Public Administration (Component 5)
Promote and disseminate a culture of integrity in the society and in Public
Administration
2.5.1. Background: Achievements and Progress
The creation and implementation of e-SISTAFE (Financial Management System of the State)
by the Government constitute one of the main achievements in this area in order to ensure
the integrity and transparency in financial transactions of the State, avoiding the of use cash
between the public sector and citizens and companies. The connecting of all Management
office of central and provincial level to e-SISTAFE and the roll-out to the District level (over
50 districts already connected) contributed to greater rigour to financial management at all
levels.
Other achievements in the framework of improvement in financial management include:
Revision of Decree No. 54/2005 of December 13, revoked by Decree No. 15/2010
of 24 May, which approves the Rules and Regulation for Contracting Contractors of
Public Works, Supply of Goods and Provision of Services to the State. As a result of
Strategic
Objective
59
legislative changes in 2010 about 70% of acquisitions of goods and services were
made through public tender;
Approval of the Strategic Plan of the Activity of Administrative Auditing and Inspection
of the State;
Revitalization and the increase of inspection activity by the State;
Establishment of the professional body of accountants and auditors;
Beginning of the decentralization process and strengthening of the capacity of the
Administrative Court and swiftness of its activities;
Realization of the National Survey on Corruption and Good Governance in the Public
Sector (Basic Research);
Approval of a legislative package on Integrity and Fighting Against Corruption;
Introduction of the Training Manual of Development Observatories and Local Advisory
Councils and development of training sessions with focus on issues of monitoring;
Anti-corruption communication campaigns;
Development of e-Folha, in the framework of SISTAFE, of calculating and processing
salary of the State.
2.5.2. Current Situation: Challenges
The country has undertaken a substantial effort at the legislative, strategic and operational
to enhance integrity, transparency and efficient management of resources. For the future it
is essential to further these initiatives as well as to promote an effective and efficient public
administration that provides quality services to the citizen. The challenges in this area are:
Simplify and communicate the procedures and status of the processes, ensuring
understanding of the procedures by the user and reducing the opportunities for
misconduct associated with systems weakness and poor knowledge of requirements
from the part of service users;
Improving quality in the provision of services to citizens, ensuring speedy provision,
especially in critical sectors such as, Justice, Health, Education, Interior and Finance;
Intensify preventive education related to the fight against corruption, especially
through raising awareness and systematic communication;
Ensure that the civil society has an active role in monitoring the interventions to
combating corruption through reinforcement of anti-corruption centres of ministries
and other public institutions;
Train consistently, judges, investigators, managers of human and financial personnel
in order to improve their performance;
Strengthen disciplinary and criminal accountability of civil servants and state agents
involved in acts of corruption or misuse of funds or property of the State;
Integrate anti-corruption education in the school curricula;
60
To continue the process of reforms of anti-corruption legislation, aimed at
strengthening the role of the Central Office for the Fight Against Corruption, clarify
what constitutes a conflict of interest, criminalize illicit enrichment, fight the influence
peddling and embezzlement of funds and protect witnesses and denunciatory, in line
with international agreements ratified by Mozambique;
Train in a systematic and continues way the structures of prevention, dissuasion and
fight against corruption, with technicians (including magistrates);
Generate a greater involvement of all the Public Adminstration in the implementation
process of rules and procedures for the acquisition and public procurement of goods
and services;
Ensure efficient and effective systems for public procurement of goods and services
adapted to the challenges of the country, promoting efficiency gains and real savings,
whether by technological development or by the profits of scale in procurement of
goods and transversal services.
2.5.3. Development Strategy: Objectives and Areas of Intervention
The defined areas of intervention for the Component Enhancing the Integrity in Public
Administration is designed to respond to the constraints and identified challenges, ensuring
the involvement and commitment of the society in the prevention of corruption, as well as
accountability in the framework of efficient management of public resources.
Table 15 - Areas of Intervention of the Component Enhancing Integrity in Public
Administration
Areas of Action
5.1. Building a System of Public Integrity
Promote the integrity, ethics and citizenship, involving the Public
Administration, the education system, families, religious institutions and
the private sector in the prevention and dissuasion of corruption, with
special focus on exemplar leadership.
5.2. Increase information about the conditions of provision of public services
5.3. Ensure that citizens know and understand the rules, costs and deadlines
of the provision of public services and encourage the reporting of cases
of infraction, especially in sectors considered as critical.
5.4. Enhance the integrity, transparency and the fight against corruption in
Public Administration.
Increasing the efficiency of financial and patrimonial management
through strict budgetary, practice of accountability, transparency in the
61
Areas of Action
acquisition process and management of public property.
5.5. Promoting a legal environment inhibitor of corruption practices
Implement a legal environment which reduces the discretionary powers
and to promote the celerity of services provided by civil servant, through
the simplification of procedures and in the PA for the celerity of the legal
requirements necessary for the formation of a process.
5.6. Strengthening and empowering the structures and mechanisms of the
prevention, dissuasion and the fight of corruption
Ensure the capacity of proactively identify problems and of response to
situations identified by the citizen and the central and local structures,
discouraging the practices of corruption and increasing confidence in
Public Administration.
2.5.4. Performance Indicators
Performance indicators presented below will allow the monitoring and evaluation of
performance of Public Administration in the framework of the component Enhancing
Integrity in Public Administration
Table 16 – Indicators of the Component Enhancing Integrity in Public Administration
Area of
Action Performance Indicator
5.1
A system of integrity Developed
Percentage of students with knowledge about matters of ethics,
integrity and citizenship in their academic curricula;
5.2
Percentage of denunciations of corruption and Embezzlement of State
funds;
Report on the process of petitions submitted;
Systematic disclosure of Report on Disciplinary Responsibility;
5.3
Percent of public services contracted through adjudication by public
tender;
Percentage of public companies that publish their accounts report;
5.4 Degree of dissemination and knowledge anti-corruption from the part
of civil servants and State agents;
5.5 Percentage of institutions audited by an appropriate entity.
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2.6. Technological Modernisation and Innovation (Transversal Component A)
Consolidate the use of information technologies and communication
2.6.1. Background: Achievements and Progress
In the National Report of the United Nations Development Program (UNDP) Mozambique,
under the theme "The Role of Information Technologies and Communication in the
Achievement of the Millennium Development Goals", is referred that "from the point of view
of governance, ITC is one of the key vehicles of Public Sector Reform and still contribute
significantly in the transparency process of acts of governance and democratization."
The approval of the eGovernment Strategy in July 2006 represented a milestone in the use
of information and communication technologies in supporting the provision of public
services, with significant international recognition. In fact, the United Nations report on
eGovernment of 2008 placed Mozambique in the 25th position respectively in the category
of e-Participation, in a total of 179 member countries.
The activities developed since then have focused mainly on infrastructure, the creation of
the Government Electronic Network (GovNet) that in addition to ensuring connectivity
enables interoperability of a wide range of services based on the Internet and Intranet, and
applications (e-SISTAFE) and with greater focus on the central structures of Public
Administration.
Thus, the major achievements of technological modernization in the public service were:
Approval of the eGovernment Strategy;
Development of GovNet, electronic government network for data communication,
covering 173 Central Government institutions and Provincial Governments;
Creation of Provincial Digital Resource Centres (PDRCs), currently functioning in eight
provinces;
Implementation of Government Portal;
Identity Card Biometric System available in all provinces and in several districts;
Introduction of the issuing of the biometric passport;
Introduction of the System of Issuing of Biometrics Driving Licence;
Implementation of the System for Industrial and Commercial Registration and
Licensing;
Social Security Management System under the National Institute for Social Security
(INSS);
Implementation of Phase 1 of the Land Management Information Management;
Strategic
Objective
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Capacity Building.
2.6.2. Current Situation: Challenges
To achieve the motto adopted for the Strategy of eGovernment - "Brining the Public Service
Close to the citizen" the following challanges are in order:
Developing the eGovernment progressively into the internet and evolve into a
transactional and subsequently transformational, promoting the provision of public
services and bringing public administration closer to the citizen;
Ensuring adequate levels of literacy in Information and Communication Technologies
(ICTs) in the Public Service;
Reducing the digital gap between the capital and the rest of the country, developing
and expanding infrastructure to support and promote ITCs trough district
governments level;
Provide a single portal with online services directed to the citizen, integrated on the
platform of interoperability of the Government;
Promote the development of local content and enable public access to government
information and services at the level of Districts and Municipalities;
Create a regulatory environment conducive to the development of society, of the
information and communication, particularly through the adoption of a Law on
Electronic Transactions, by the competent organ;
Introduce and articulate in the sector-based strategic plans the component of ITCs as
well as promoting the alignment between bodies with competences on the area of
systems and information technologies in different sectors;
Ensure all the electronic support of all financial transactions and State taxation,
integrating it in the Platform of Interoperability of the Government;
Computerize records and develop management systems that ensure high reliability
and availability of information, as well as greater efficiency and effectiveness of
Public Administration bodies;
Integrate data about Civil Registration Identification, in an authoritative source for
common use by all public sector organs, namely the Identity Card, the Passport, a
Residence Permit (DIRE), the Single Tax Identification Number (NUIT), the Vehicle
Registration and Human Resource Management.
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2.6.3. Development Strategy: Objectives and Areas of Action
In order to overcome the identified challenges there were defined four main Areas of
intervention within the transversal component Technological Modernization and Innovation,
as presented below.
Table 17 - Areas of Action of the Component Transversal Technological Modernization and
Innovation
Areas of Action
A.1. Promoting proximity between central and local organs
Extend the Government's electronic network to all districts and strengthen the use
of information technologies and communication at provincial and district levels,
reducing digital asymmetries between capital city and the rest of the country.
A.2. Increase the use of information and communication technologies
Increase the use of information and communication technologies in the activities
of various sectors, ensuring the inclusion of the component ITCs in the sector-
based strategic plans and the creation of the technological competences in the
Ministries.
A.3. Ensure the integration and Sharing of data and knowledge
To dynamize the sharing of common data in the systems of Public Administration
and promote the coordination among organs of information technologies of various
sectors in order to create cooperation and sharing of good practices.
A.4. Facilitate the provision of services, swiftness and simplifying processes and
procedures
Leveraging the gradual and sustained transformation of processes of provision of
public services through the introduction of supporting technologies and dynamize
the process of dematerialization and promotion of online services (website), in the
context of an appropriate legal framework.
2.6.4. Performance Indicators
The performance indicators presented in the following table, whose goals are defined as a
starting point for the implementation of each action plan, permits the monitoring and
evaluation the performance of Public Administration in the ambit of the component
transversal Technological Modernisation and Innovation.
Table 17 – Indicators of Component Transversal Technological Modernization and
Innovation
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Areas of
Action Performance Indicator
A.1
Percentage of districts connected to GovNet
Percentage of district governments with e-SISTAFE in operation
Percentage of districts with community multimedia centres
Percentage of District Governments with online presence
A.2
Average number of employees with higher education linked to ITCs by
ministry
Percentage of Strategic Plans developed that incorporate ITC
component
A.3 Number of systems operating in an integrated form
A.4
Number of services available online
Percentage of provincial governments that provide online services
Percentage of district governments that provide online services
2.7. Monitoring, Evaluation and Communication (transversal Component B
Monitor the implementation and measure results
2.7.1. Background: Achievements and Progress
In the sphere of implementation of public sector reform, efforts were made to monitor the
execution and evaluate the results, having been also developed a set of actions and
instruments of communication:
Semi-annual reports to monitor the implementation of the Public Sector Reform;
Definition and monitoring of indicators of the time of provision of key services;
Satisfaction Surveys and tools (December 2009);
Conducting an opinion study on Public Sector Reform;
Monitoring and Evaluation System for the Business Improvement Strategy;
Installation of Electronic Terminals of Citizen satisfaction Evaluation in all BAUs;
Monitoring and Political oversight by CIRESP;
Conducting Dissemination Seminars of the results of the implementation of the
Public Sector Reform;
Strategic
Objective
66
Creation of communication tools of the Reforms, with the involvement of rural level of
community radios and the Portal of Reform.
2.7.2. Current Situation: Challenges
Despite the monitoring and evaluation tools already developed and implemented, it is
essential to strengthen the culture of "accountability" to further effective implementation.
Thus, the major constraints and challenges within the sphere of monitoring, evaluation and
communication are:
Leverage the implementation through the monitoring, i.e., monitoring must have as a
corollary not only the monitoring of the implementation, but also the definition of
concrete actions in order to overcome constraints and celerity of the implementation;
Strengthen accountability on the basis of monitoring results, i.e., institutions and
individuals must be accountable of results;
Ensure decentralized and permanent monitoring of the defined measures promoting
an integrated vision and sharing experiences;
Define specific, measurable and tangible goals and actions, distinguishing monitoring
of the implementation and monitoring of the impact/results;
Consolidate the monitoring system to enable the monitoring in real-time of the
evolution of the implementation of the Development Strategy of Public
Administration;
Ensure regular public disclosure of the implementation of the measures and their
impacts;
Mobilize employees and State agents, to be effective development agents;
Actively involve citizens in the monitoring process, promoting public participation;
2.7.3. Development Strategy: Objectives and Areas of Action
The areas of activity in this Transversal component are aimed at strengthening the
developed activities within the governance sphere, having as the main objective to guide the
monitoring, communication and evaluation for concrete and tangible results, actively
involving civil servant and the citizens and valuing the obtained results.
Table 18 - Areas of Action of the Component Transversal Monitoring, Communication and
Evaluation
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Areas of Action
B.1. Ensure continuous monitoring of the initiatives
Consolidate the mechanisms of monitoring and auditing of development measures
of the Public Administration, at sector-base and transversal level, which enable to
apprehend, at any time, the degree of implementation of programs and policies.
B.2. Evaluate and continuously improve the defined measures
To analyze the level of implementation of development measures of the Public
Administration, in terms of activities and impacts, and define and implement
improvement measures in useful time, which promote a culture of continuous
improvement.
B.3. Communicate results regularly
Involving civil servant, the citizens, the Private Sector and Civil Society in the
development process of Public Administration, providing on a regular basis, relevant
information on progress made and difficulties encountered and encouraging the
contributors from stakeholders.
B.4. Promote the sharing of good practice between sectors
Identify and analyze success cases in the development of PA in the national and
international levels, and encourage their replication to other services.
2.7.4. Performance Indicators
The Performance indicators presented below, whose goals are defined as a starting point for
the implementation of each action plan, enables the monitoring and evaluation of the
performance of Public Administration in the sphere of the component transversal
Monitoring, Communication and Evaluation.
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Table 19 – Indicators of Transversal Component Monitoring, Communication and Evaluation
Areas of
Action Performance Indicator
B.1 Integrated Monitoring of System of ERDAP Functioning
B.2
Biennial Evaluation of citizen satisfaction
Elaboration of biennial evaluation of satisfaction of civil servants
and State agents
Preparation of biannual report of the analysis of services provided
B.3 Number of communication instances carried out in the sphere of the
divulgation of development initiatives of PA
B.4 Number of good practices disseminated
Recommended