Summary Report - Diagnostic Reviews of Strategic …unpan1.un.org/intradoc/groups/public/documents/caricad/unpan007851… · Preliminary Report: Diagnostic Review of Strategic Planning

Preliminary Report: Diagnostic Review of Strategic Planning in CARIFORUM Member States CARIFORUM / EDF Project 8 ACP RCA 005

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SUMMARY REPORT

DIAGNOSTIC REVIEW OF STRATEGIC PLANNING

IN CARIBBEAN PUBLIC SERVICES

Compiled by the CARIFORUM/EDF Project Team December 05, 2000


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Table of Contents

Introduction Methodology Executive Summary Group 1 Bahamas Jamaica Group2 Antigua & Barbuda Dominica Saint Lucia St. Kitts & Nevis St. Vincent & the Grenadines Group3 Barbados Guyana Trinidad & Tobago Collaboration with the Dominican Republic and Haiti. Appendices Terms of Reference for Diagnostic Review List of persons consulted

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3

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15 17 21 23 26

30 33

34

36 37


Page 3 Introduction The Caribbean Centre for Development Administration (CARICAD has been designated as the executing agency for a three-year project funded by the European Development Fund (EDF) on Strategic Planning in Caribbean Public Services. Project activities extend to all Member States of CARIFORUM1. The substantive areas to be addressed by the project will enable the promotion and adoption of strategic planning and management skills, systems, and structures by public sector administrations of CARIFORUM Member States with a view to Member States realising greater effectiveness and efficiency in the formulation, coordination and implementation of development policies and programmes. The Project has a critical role to play in strengthening regional collaboration and cooperation in the area of public sector reform, not only so as to promote cross fertilisation, but also so as to maintain a focussed and coordinated pace of reform and strategic planning in order to optimise long-term results and benefits among participating countries. The initial point of departure, therefore in realising project goals on strategic planning has been the conduct of a preliminary series of diagnostic surveys on the status of such planning in Member States. Consultants were engaged by CARICAD over a two-week period to undertake interviews and consultations, leading to an objective assessment of strategic planning being undertaken or proposed in CARIFORUM Member States. The Consultants were required to obtain both generic and specific features of the processes being undertaken, as further adumbrated in the Terms of Reference at Appendix 1. This Report summarises the field work of the Consultants. It is intended to provide a precursory understanding of the status and complexities of strategic planning for public sector modernisation in Member States, and to focus the deliberations of the Working Group in setting policies for the advancement of project objectives relative to human resource and other institutional development in Caribbean Public Services. The data obtained will be utilised for subsequent project activities to promote the requisite skills, systems and structures by which improved management of the Public Services of Member Countries Public Services can be realised.

1. CARIFORUM Member States include Antigua and Barbuda, Bahamas, Barbados, Belize,

Dominica, Dominican Republic, Grenada, Guyana, Haiti, Jamaica, St Kitts and Nevis, St. Lucia, St. Vincent and the Grenadines, Suriname, Trinidad and Tobago.


Page 4 Methodology The Work Programme for the conduct of the diagnostic surveys for CARIFORUM/EDF Project provided for a pre grouping of Member States ostensibly on the basis of geographic proximity. The three (3) groups listed under the Project were:

Group1: Bahamas, Belize and Jamaica; Group2: Antigua & Barbuda; St. Kitts & Nevis; Dominica; Saint Lucia; St.

Vincent & the Grenadines; Grenada; Group3: Barbados; Trinidad & Tobago; Suriname; Dominican Republic and

Haiti. The Work Programme initially envisaged audits of at least five (5) days in each country. However, several constraints, notably the time period available for the exercise juxtaposed against the convening of the Working Group Meeting, and other prevailing internal situations in countries militated against this methodology. Consequently, an average of two (2) days was devoted to individual countries, and surveys have not yet been initiated in Barbados, Belize, Grenada, Suriname, the Dominican Republic and Haiti. With respect to the Dominican Republic and Haiti, exploratory meetings were held with authorities responsible for public sector reform, and several ideas exchanged with a view to forming the basis for further collaboration under the current Project. While the diagnostic reviews were not intended to be in depth analytical studies, they were however, intended to provide indicators from the main stakeholders involved in public sector reform efforts on the extent and effectiveness of strategic planning applications and/or the interest to adopt such an approach. It was also intended that descriptive data, preferably to a period 1995 - 2000, would be obtained on a number of items with a view to depicting changes, over time, in the size and composition of the public services, along with principal features of what each country includes as part of a public sector reform programme (PSRP). Such data would provide a comparative overview of similarities and differences in the elements of the reform efforts, which is particularly indicative in developing a regional collaborative approach to strategic planning. The Consultants engaged for the diagnostic review exercise were contracted on the basis of their expertise in the area of public administration, as well as their sensitivity to and familiarity with the realities of public sector reform and related activities in CARIFORUM Member States. The Project was particularly interested in gleaning their candid and objective analysis of the status of activities, and their professional recommendations for the countries concerned. However, there were obvious shortcomings in deliverables with tangential implications for the realisation of our key objectives. Nonetheless, this Preliminary Summary Report is an attempt to record the individual analyses in the manner which reflects the tone of the professional assessments. The CARIFORUM/EDF Project on Strategic Planning does not necessarily, however, endorse these views.


Page 5 Executive Summary Strategic Planning activities are at varying stages of implementation in CARIFORUM countries. There are useful lessons to be learnt in those countries notably Jamaica and Trinidad and Tobago where public sector reform and modernisation programmes are well entrenched, and a culture of strategic planning is being firmly inculcated. Human resource and financial management appear to be common areas of concern and focus for strategic planning in most administrations where reform programmes are most inchoate. Moreover, there is some tendency to compartmentalise development and reform programmes into discrete subject areas, which is almost antithetic to the integrated and holistic approach which is contemplated under strategic planning and implementation at the level of the public sector. While each Government national strategic planning programmes and projects have been articulated to varying degrees, there is little or no cross-fertilisation among strategic planners in individual administrations in propelling objectives forward. There is, however, clear evidence that countries can benefit greatly from the programmes which have already been introduced and tested by their neighbours. This mechanism would further serve to reduce the introduction of “alien” concepts and policies into regional administrations where reform and strategic planning projects are being fuelled by extra-regional sources. The success of all programmes has been deemed to lie in the manner in which they are embraced by main stakeholders. As such, there must be a concerted effort to sustain interest and commitment to strategic planning, and other public modernisation reform activities. Given data available, the following indicators have consistently emerged among Member States on the extent and effectiveness of strategic planning applications and the measures necessary to optimise the realisation of objectives:

1. There is need for greater involvement and commitment by senior public servants in the Strategic Planning Process by clearly establishing the relevance and the overall benefits to persons, organisations and the general public.

2. The meaningful involvement of trade unions should be borne in mind in developing a regional approach to strategic planning amongst CARIFORUM Member States.

3. Countries must be supported by human resource management and information systems, and appropriate financial management systems.

4. The legislative framework must support strategic planning and reform objectives. 5. There must be coherent and sustained linkages with other ministries in the strategic

and corporate planning especially when the responsibility lies with a single Ministry. 6. All permanent secretaries (senior executive officials) should be exposed to strategic

planning including, where practicable formal tertiary or professional level training. 7. Intensive and extensive training programmes must be developed to impart the

required competencies and skills of public sector personnel engaged in public sector reform, with attention paid to creating a learning curve.

8. Emphasis must be given to the important corollaries for strategic planning and the efficient implementation of government programmes such as Physical and Economic Planning, Project Cycle Management, Negotiation and Procurement, Economic Analysis and Policy Formulation and Project Evaluation.


Page 6 9. There is need for a comprehensive public awareness programme to ensure initiatives

are clearly understood by all citizens. 10. The dynamics of attracting, motivating and retaining qualified and competent

professionals in the public sector must be resolved as a critical elements of all reform and development initiatives.

11. Mechanisms must be established whereby senior managers are held accountable for the performance of their departments.

12. CARICAD must increase its effectiveness in serving as a clearing house for information on public administration and reform activities in the region, and must provide for more meaningful collaboration and sharing of useful lessons and successes among Member States.

The Project has also received a specific request from Haiti for assistance in developing and convening a National Seminar on Public Sector Reform, which would provide concrete data on regional and international and regional “best practices”, and allow for the ventilation of major concerns and obstacles to the Haitian reform process with a view to arriving at a synthesised implementation programme and strategy to achieve the administrative reform.


Page 7 The Bahamas 1.0 Documentation on PSRP Bahamas is not the recipient of an externally funded project on PSR. With a relatively high per capita GDP of (US) $15,000.00 (1998), Bahamas does not qualify for grant assistance or concessionary project financing from most external donors, as well as the Caribbean Development Bank. Initiatives to improve the management to the public services tend to be internally driven. They are systematically derived from a general policy outlook that recognises the importance of sound management practices, regard for efficiency, customer-satisfaction and skills acquisition as essential attributes of a service-oriented economy, predominantly tourism and international finance. Appointment of a Parliamentary Secretary in the Office of the Prime Minister, with specific responsibilities for the improved management of the public sector, was seen as a strong policy indication in favour of reform by the current administration, which assumed office after the national elections of 1992. Progressive changes have been made to upgrade those portfolio responsibilities through the appointment of a Minister of State for the Public Service in the Office of the Prime Minister followed by what obtains since 1999, a Ministry in its own light with responsibility for the Public Service, Immigration and National Insurance. Two recent policy statements adequately reflect government's position. The first was made by Hon. O. A. Turnquest, Minister of the Public Service at the Caribbean Ministerial Consultation and High-level Workshop, May 2000. The second was by the Prime Minister, Rt. Hon. Hubert Ingraham at an Awards Function observing National Public Service Week, October 22 - 27, 2000. In the statement by Minister Turnquest, the main areas addressed under a Public Sector Reform Programme (PSRP) were: .1 devolution of authority relative to local government for the Family Islands; .2 the introduction of elected School Boards in Public Schools; .3 establishment of a Public Hospitals Authority and an Airport Authority .4 the preparation of new labour legislation; .5 revision of the General Orders; .6 design and introduction of a “new” Performance Appraisal System; and .7 the operationalisation of a computerised Human Resource Management

Information System and on-line connections to almost every Government Department.

According to Prime Minister Ingraham, “the dedicated service of public officers is in no small measure responsible for the economic turnaround enjoyed in our country since 1992.” This remark was part of the Address on the Occasion of Public Service and Recognition of Retirees week (25 October 2000). This will become an annual event as a means of showing appreciation for the contribution of public servants to the society’s development.


Page 8 2.0 Size, Structure and Statutory Agencies It is estimated that the core public service has 20,000 employees in 69 departments and 15 ministries. There are 16 Permanent Secretaries along with selected senior officials at a related grade in such positions as Secretary to Cabinet, Financial Secretary, a Chief Valuation Officer and a Director General in the Ministry of Tourism. The latter position has a special compensation package by contract, outside of the civil service grades. The Secretary to Cabinet is Head of the Civil Service. The view was expressed that a formal Committee or Board of Permanent Secretaries might be viewed with scepticism by the directorate. In terms of keeping the senior management informed of Cabinet decisions, there is a very efficient system by which composite conclusions of Tuesday’s Cabinet meeting are circulated by Friday of the same week. Jamaica 1.0 Size, Scope and Structure The Public Service of Jamaica comprises 14 Ministries, 21 Departments, 4 Executive Agencies, 158 public entities (135 active; 23 inactive) and includes the 4 regional health authorities, the protective services (police, prisons, fire, Coast Guard, Jamaica Defence Force, customs, immigration), the courts, Parliament, the postal service, and the teaching service. The Central Civil Service employs some 39,587 persons and the Total Government Paid Employees at the end of 1999 numbered 99,900. Within each Ministry, Department and Agency, there is a complex structure of divisions and units not captured in this report. While organisational structures exist for each entity, all structures are under review and reorganisation with change being the only constant. 2.0 Overview of Public Sector Reform Programmes/Projects The Government of Jamaica has been pursuing the reform of the public sector through various initiatives, notably the Administrative Reform Programme (ARP), the Health Sector Reform (HSR), and the Tax Administration Reform Programme. (TAXARP). Since 1995, the major focus has been the Public Sector Modernisation Project (PSMP) which is funded jointly by the Government of Jamaica and the World Bank. The Office of the Cabinet, through the Project Management Unit (PMU) is responsible for the Implementation of the PSMP. Since the commencement of the PSMP, the major projects have included: i. The establishment of Executive Agencies ii. The installation of a Financial Management Information System (FMIS) iii. The installation of a Human Resource Management Information System

(HRMIS) iv. The introduction or upgrade of Corporate/Strategic Planning v. The implementation of a Performance Management System

vi. Computerisation of some entities.


Page 9 vii. General reform of the civil service, including organisation structure changes,

rationalisation of staff, upgrading of Human Resources, and the addition of corporate planners and policy analysts in all ministries

viii. Strengthening and modernisation of the Human Resource Management function within the public sector

ix. Public Expenditure Monitoring, and x. Capital Budgeting Programme. There are various mechanisms in place for public sector reform. The major among these is the Inter-Ministerial Committee on Administrative Reform (IMCAR), which is headed by the Prime Minister, and which gives policy direction to and championship of the reform activities, and the Project Management Unit (PMU) . The PMU reports to the Cabinet Secretary and is responsible for day-to-day coordination and oversight of the PSMP. Funding for PSR activities, and technical assistance for the development of skills and systems have been provided by foreign governments, and international and regional development agencies. The funding has mainly taken the form of loans and grants on a project cost-sharing basis with the Government of Jamaica, although the actual quantum of external funding and the representative percentage of the total PSMP budget and the total level of expenditure on other reform initiatives was not disclosed. 3.0 Outputs, Outcomes and Expectations of PSMP The main outputs have been the development of corporate/strategic plans and operational plans within the major ministries, including Finance & Planning, Education, Health, National Security & Justice and the Office of the Prime Minister. Additionally, the first four Executive Agencies were established on April 1, 1999 in key service delivery areas: - the Administrator General’s Department (AGD); the Registrar General’s Department (RGD); the Management Institute for National Development (MIND); and the Office of the Registrar of Companies. The Diagnostic Phase has been completed for the imminent designation of four more Executive Agencies, and the rationalisation of ministries, beginning with the Transportation & Works Ministry is also underway to achieve more efficient and effective delivery of services. Several Human Resource Management and Development programmes and policies have also been completed and introduced to modernise and strengthen the HR function in the Jamaican public sector. The reforms have combined to accrue improvements in human resource management and development, greater autonomy, accountability and strategic action among executive-level public officers, and improved delivery of customer services in some Executive Agencies. Jamaica expects, however, that the current reform and modernisation process will lead to a cost-effective, efficient public service, the introduction of performance-based pay systems by 2003, a performance management system of target-based accountability; and the existence of corporate/strategic plans in all public entities as the basis for budget submissions.


Page 10 4.0 Strategic Planning in the Jamaican Public Service 4.1 Background, Methodology and Status It was reported that corporate planning in the Jamaican Public Service started in 1992. It is done annually and results in a three-year Corporate/Strategic Plan and a One Year Operational Plan being documented. The Three Year Plan is ‘rolled over’ each year with the previous Year One deleted and a new Year Three added. An Environmental Scan is conducted each year to inform the planning process and the senior and middle management level officers are generally involved. It was reported that the Trade Unions are not included in the process. Within each ministry/ department, a corporate planner has been appointed to coordinate the process and to provide technical expertise. To date, a ‘Log Frame’ template has been used to date for the plan, however, a new narrative template is now being introduced. It would appear that most, if not all, ministries/ departments and executive agencies have Corporate/Strategic Plans. However, the final number could not be confirmed at the time of this report. The five largest ministries/departments in the public service have been conducting strategic planning since its inception, and all ministries, departments and public entities are expected to produce corporate/strategic plans for the 2001 - 2002 Budget Year. 4.2 Response to the Strategic Planning Process The opinion was expressed that “better buy-in” and more consistent follow-through were needed, especially from the top levels of management. People were generally interested in the Strategic Planning Process but it was still largely an academic or intellectual exercise undertaken because it was mandated. The benefits were not yet fully appreciated in terms of the results being achieved. The JCSA leadership has expressed interest and support to the process and a desire to be involved and to make a contribution. 4.3 Monitoring and Evaluation of Results Progress is evaluated on a monthly and quarterly basis with divisional and branch heads required to submit written reports to their Permanent Secretaries stating the Outputs, Activities, Situation, Constraints and Next Step. Annual Reports are also required at the end of each Financial Year. Within the Ministry of Finance and Planning a Financial & Management Committee (FMC) was established in 1999 comprising the Deputy Permanent Secretary, the Deputy Financial Secretary and select senior management officers. The FMC looks at reform initiatives, performance management, performance indicators and measurement systems. The members deal with management and operational issues and inform the Financial Secretary. This allows the Financial Secretary freedom to deal with more strategic issues and international matters. 4.5 Accountability and Performance Evaluation of Permanent Secretaries/ Heads of

Agencies On April 1, 2000, a new performance evaluation mechanism was instituted by which Permanent Secretaries and Heads of Agencies are held accountable for the implementation of these plans and their outputs and outcomes. Performance Agreements were signed between


Page 11 the Cabinet Secretary and the Permanent Secretaries on March 31, 2000 which detailed the performance targets against which PSs will be evaluated for the fiscal year 2000/2001. The PSs will be evaluated by a committee comprising the Cabinet Secretary, the Financial Secretary and the Chairman of the Public Service Commission. 5.0 Outputs, Outcomes and Expectations from Strategic Planning The main outputs reported were: a. Strategic review of the entire operations of the Ministry of Finance & Planning

and the linkages with line ministries and development of plans and programmes to improve its operations, particularly from the Budget and Economic perspectives.

b. Review of the Financial & Administration Act (FAA). c. A Capital Policy document drafted recently. d. Review of the financial and accounting operations in all ministries and

departments governed by the MOF and the update/ review of policies and guidelines.

e. Delegation of financial authority through the mechanism of an approved budget and budget control process which is based on agreed targets in the corporate/strategic plan for each ministry and agency.

f. Delegation of human resource management decision-making authority normally exercised by the Service Commission Department.

g. Revised, streamlined and rationalised organisation structures, staffing and operating systems and procedures of several ministries, departments and agencies.

h. Computerised and modernised operating systems and databases in several ministries and agencies, notably the Revenue Agencies. This has included the successful introduction of Tax Registration Numbers (TRNs) which is required for any government transactions.

i. Completion and publication of Citizens Charters by several agencies. The main outcomes reported were: a. Improvement in the delivery of services to the public in some agencies. For

example, the Inland Revenue Department has streamlined and improved the Tax Collection system and new opening hours and additional locations prove to be more convenient to the public.

b. A new role for the Service Commission Department, given the delegations of

HRM authority to PSs, is being defined and will be reflected in the new Corporate/Strategic Plan for the Department. The new role and function will focus more on monitoring and auditing those line ministries to whom HRM authority has been delegated; and on improved service delivery to line ministries.

c. More efficient and effective delivery of management development services to

line ministries in the areas of organisation development (OD), HRM & D technical support and programme and policy development.


Page 12 Reported expectations include: a. Improved tracking of taxpayers liability and compliance history. b. A more productive, results-oriented public service. c. Tighter, more effective management of public expenditure, reduced overruns,

improved project prioritisation and capital rationing, and more efficient capital project monitoring.

d. Customer-based re-organisation of service delivery within the MOF to provide streamlined financial, budgeting and project analysis and monitoring services to satellite ministries.

e. Financial self-sufficiency of the Executive Agencies so that they can be removed from the central budget.

f. Pay review of senior management salaries. Training Needs for the Realisation of Strategic Planning Objectives Annual Training Needs Assessments have been completed since 1995 producing the same general findings each year in the following areas:

- General Executive and Management Development for all levels of management on an on-going basis (to include leadership skills, delegation, interpersonal skills, intra-personal wellness and balance).

- Strategic Planning including for junior management - Information Technology/ Information Systems for users at the management level. - on-going computer applications training for users and technical support staff. - Implementation Skills - how to achieve targets set. - Time Management.

Training is provided each year in all the above areas but insufficient funding was cited as a constraint hence the recurrent findings of the annual training needs assessment. Staff turnover was not considered a cause of the recurrent findings and it was reported that what was learned was sometimes transferred to the workplace. The general conclusion was that perseverance was necessary. 6.0 Limitations It was reported that there were no processes or projects in place, or being contemplated at this time which would inform the basis of a regional approach on strategic planning in the public sector. The Role of the Public Service Trade Unions in the Strategic Planning Process has also not been optimised. The President of the Jamaica Civil Service Association indicated that the unions were not being involved in the strategic planning process. It was reported that every time the unions interacted with the management group on projects, the management expressed appreciation for valuable insights gained, yet there appeared to be a “distinct revulsion to involving the unions at this stage.” However, the unions, as experienced labour leaders and representatives of a major stakeholder group in the public service, feel that they have a vital contribution to make to the process. This contribution was particularly important to the effective implementation of projects and the introduction of change, as the strategic planning process was seen as a typical start phase for public service projects and reform.


Page 13 Consequently, the meaningful involvement of trade unions should be borne in mind in developing a regional approach to strategic planning amongst CARIFORUM Member States. 7.0. Observations and Conclusions Overall, Jamaica appears to be making satisfactory progress with regards to PSR and the implementation of Strategic Planning in the Public Service. The right measures and appropriate ‘best practices’ are being put in place as a model for PSR in the Caribbean. The reported PSR progress may be more form than substance with activities being measured as outputs. Current best practices for PSR promote the decentralisation of authority for financial and human resource decision-making to achieve an efficient and effective public service. This entails the authority to hire, fire and discipline employees being delegated to Permanent Secretaries and Chief Executive Officers of Executive Agencies. Fear of victimisation, due to the power of the new CEOs, and fear of loss of jobs has been reported to be greater than before with a resulting increase reported in job-related stress. It was opined that a “Rule of Fear prevails in total antipathy to the stated philosophies of fairness and transparency to transform the economy by the involvement of the worker. Therefore, the objectives are deemed unattainable. On the other hand, a noteworthy level of enthusiasm, commitment and professionalism has been observed amongst many of the officers interviewed or observed, particularly the members of the Management Development Division, regarding their work and the outputs achieved.


Page 14 GROUP 2 Antigua and Barbuda 1.0 Overview The Ministry of Planning held a National Seminar on the Strategic Development Plan in St. John’s, Antigua on November 20 – 21, 2000 towards a five-year completion target. The process involved an assessment of the current work programmes and policies of the various sectors of the economy, including tourism, agriculture, manufacturing and trade, environment, public utilities, transportation and energy and finance. Over the past year, the Ministry of Planning has formed a number of sectoral committees to undertake the task of assessment and programme development. The committees comprise professionals and technicians of the relevant ministries, stakeholders and members of civil society. The Minister of Planning has pursued the broadest input into the plan and has produced a planning guide in which a number of parameters have been established to ensure consultation at all levels of the planning process. The guidebook also prescribes a feedback mechanism whereby continuous input from experts and stakeholders can be accommodated in the planning process. The Government of Antigua & Barbuda has recently accelerated its Public Sector Reform initiative. The public sector reform initiative was set in motion back in 1994 as a result of pressures from the multinational financial institutions, namely, the World Bank and the International Monetary Fund. Between 1994 & 1995 a number of initiatives were set in motion. Ministries were encouraged to develop Mission Statements. Organizational charts were developed, as well as job descriptions. In addition, a Permanent Secretaries Board was established, chaired by the then Chief of Staff. 2.0 The Current Position Through the Ministry of Planning, Implementation & Public Service Affairs, and integrated approach to reform has been initiated. The approach is to develop a national strategic plan encompassing all the disciplines in Government as well as input from the private sector, NGOs and civil society. It is recognized that none of these can be accomplished without a significant revamping and re-engineering of the public bureaucracy. Hence a public sector coordinating unit has been established which has benefited from input of a multi-sectoral and interdisciplinary Advisory Committee. The work of these bodies has resulted in the appointment of Consultants PriceWaterhouseCoopers to undertake the public sector reform exercise. A Steering Committee has been established with representatives from Government, the private sector, staff associations and trade unions to liase with and facilitate the work of the Consultants. The initial consultancy is projected to take six months, and the outputs will be comprehensive recommendations for change which will become the responsibility of the Government to implement. The investigation will focus on the following key targets:


Page 15 .1 Size and functions of government, governance and leadership;

.2 scope for contracting out/privatising/divesting functions and services; .3 systems of administrative and financial management and scope for

improvements in delegation, accountability and performance monitoring; .4 budgetary systems and processes, covering legal, executive, planning,

information, control and audit and other impediments to improved budgetary preparation, management, execution and monitoring;

.5 role of Public Service Commission personnel management, legal and disciplinary framework;

.6 role of Trade Unions and Employers’ Associations in promoting and maintaining a harmonious industrial relations climate;

.7 pay and staffing levels for private/public sector: performance appraisal system; promotion policy;

.8 where civil service reform programmes have or are taking place in the Region and elsewhere: how the process was managed, how decisions were made, and how effective were the changes that were implemented;

.9 the key characteristics of successful efforts to improve capacity in administrative and public expenditure management within CDB’s Borrowing Member Countries which may be replicated in Antigua and Barbuda; and

.10 CARICAD’s ongoing and proposed work programme. 3.0 Summary and Conclusion The Public Sector Reform (PSR) process in Antigua and Barbuda (A&B) is at an embryonic stage and appears to be well managed and focussed using available resources effectively. Nevertheless, significant institutional strengthening will need to be urgently provided to key ministries such as Finance in order to move the process forward. Among the specific technical assistance needs identified are: - .1 a Human Resource Information System (HRIS) .2 job evaluation, job descriptions, performance indicators and competencies. .3 a Labour Market Information System (LMIS) needs to be established. .4 the revision and review of the Legislative Framework. .5 Programme Budgeting Reform and Financial Management will need to be

introduced. .6 The Tax Administration and Collection process will need to be improved and

streamlined. .7 ASYCUDA - a Customs Programme and Monitoring System, will need to be

installed.


Page 16 The Commonwealth of Dominica 1.0 Background The Government of Dominica is served by 11 Ministers, and 27 Senior Public Managers. Of the 5000 public servants, 3000 are established and 2000 non-established. The percentage GDP from Government Services is 6.2%. There have been several attempts to modernise the public service, dating back to 1980 with a Manpower and Methods Study which sought to improve the efficiency and effectiveness of the Public Service. More recently, in 1996, a concerted effort was made to arrive at strategies for renewal and advancement of public sector management. With support from the British Department for International Development (DFID), all major stakeholders such as union representatives; senior government officials; the political directorate and the public service union participated in an exercise which sought to arrive at a consensus on strategies for renewal and advancement of public sector reform. Following the review DFID approved funding for a public sector development project. The major areas of focus in the first instance were: ‚ review and modernisation of the Public Service Act, to include the redefinition and

conversion of the existing General Orders into Regulations to the Act; ‚ review of legislation governing the Police Service ‚ review of the Public Service Commission Regulation ‚ improvement of the performance management system through the modernisation of

the current performance appraisal process ‚ Enhancement of the information systems in the public service, particularly the human

resource information system; ‚ Piloting of Value for Money Studies in two key ministries/departments in the public

service, with intention of extending the process to other ministries/departments. 2.0 Status of implementation As a condition for support for the programme of public sector modernisation from DFID, a special unit was established to coordinate the activities of the reform programme and to generally spearhead change-management processes in the public service. This Reform Management Unit was established in 1998 and is headed by a Manager who is assisted by two staff officers. The reform initiatives being undertaken are summarised as follows: - .1 A new performance appraisal system referred to as the Employee Assessment and Development Review (EADR) has been designed. The EADR is designed to replace the existing performance evaluation system which is considered to be subjective and not very useful in providing information on which the development of employees can be based. There is satisfaction with the level of involvement in the new process and the general drive to ensure wide acceptance of the new system, although there may be need for more emphasis to be placed on the relevance of the new system to other reform initiatives currently being undertaken.


Page 17 .2 Value for Money Studies were conducted in the Ministries of Health and the Establishment Department to determine and implement the most appropriate systems, structures, procedures and processes to achieve objectives and improve service levels in both departments. A number of recommendations made have been implemented and others have been incorporated into the Corporate planning process annually. The Reform Management Unit continues to monitor and provide support in implementation as required. .3 The existing dysfunctional human resource information system will be replaced by a new payroll software package currently in use at the Accountant General’s office. It is expected that the system will allow for Ministries/Departments to access human resource information from the central system at the Establishment, Personnel and Training Department for decision-making. .4 Financial and Budgetary Reform: Attempts are ongoing under the auspices of the Canadian International Development Agency’s East Caribbean Economic Management Programme ECEMP to introduce programme budgeting into the ministries and departments of the public service. All Ministries are required to prepare annual corporate plans which are subject to the approval of the Ministry of Finance and Planning. The objective of the introduction of programme budgeting is to streamline government spending and manage funds on a project basis as opposed to a line item basis as obtained in the past. .5 Legislative Reform: Legislation, regulations, processes and procedures governing Human Resource Management and other relevant areas are being examined with a view of recommending changes to allow for greater devolution of powers to top managers where appropriate, clear managerial accountability and development of clear, lines of authority, methods and procedures. The aforementioned reform initiatives have received funding through international agencies such as, DFID, the CIDA/ECEMP, the Commonwealth Secretariat, in terms of providing technical assistance to ensure coordination of the various reform efforts of the Government of Dominica; and CARICAD through technical support in various aspects of the reform programme such as the development of the employee assessment and development review system. 3.0 Initiatives underway to facilitate strategic planning at the national level. During the period April 3-4, 2000 a workshop was convened as the first step in the preparation of the National Integrated Development Plan under the auspices of the Ministry of Planning in association with the Organisation of Eastern Caribbean States, Natural Resources Management Unit OECS/NRMU. The workshop enjoyed participation from a wide cross section of stakeholders including members of the ruling administration, the opposition, representatives from the private and public sectors and non-governmental organisations, representatives from the OECS, the Organisation of American States and the Caribbean Development Bank. It is anticipated that the integrated planning approach to development will provide a major platform for the strategic planning process which will guide development planning through: - operationalisation of Government Policies


Page 18 - preparation of development plans at the macro and micro levels - articulation of a holistic approach to the budgetary process for the

achievement of national economic goals and objectives The public endorsement by the late Prime Minister the Hon. Roosevelt Douglas through clarification of the intent of Government, and the provision of the mandate for the adoption of the integrated development planning approach, to guide the management of the economy must be applauded. 4.0 Observations The process of developing the corporate plan engages entire ministries, department by department in a strategic planning activity. Therefore within all Ministries one can conclude that there is some form of strategic planning in effect, with certain Ministries such as the Ministry of Health, the Ministry of Education, and the Ministry of Finance and Planning engaged in a more comprehensive process than others. The lack of cohesiveness with other reform initiatives is however, very evident. For instance, in order for the corporate plans to be operationalised and monitored effectively in terms of achieving stated targets, there must be a clear indication about the resources/inputs required to obtain these outputs. There must also be a stated means of measuring whether objectives are being met at the individual as well as departmental level. Currently this capability does not exist. Therefore, the new performance management system and the proposed work load analysis are all critical steps to ensuring that the public sector is equipped with key information on which the planning function can turn. Without this information and the appropriate marrying of the various tools of public sector management, any attempts to plan strategically will fail. Within Dominica one gets the impression that although when taken as a whole the reform initiatives can be seen as supportive to each other, the reality is that they were all conceptualised at different points within or external to the system and sometimes with no consideration or knowledge of the other. Hence, what exists is a set of major initiatives which are critical to the overall reform of the public service, but no central coordination. In addition, the genesis of the reform effort appears to be rooted in the perceived need to improve the human resource management function on the one hand and on the other, in the need to improve the financial management function of the government. Therefore, there has been a preoccupation with reforming the planning function at the Ministerial level purely from an accounting position and not necessarily from the need to create a results-oriented culture among employees nor to move the Ministry toward any preset widely accepted developmental goals identified for the entire Government of Dominica. Several constraints identified, include: • The shifting of emphasis by changing political directorate • the general lack of manpower within the ministries to plan strategically • the disjointed implementation of corporate planning and programme budgeting • the need to update existing General Orders and Public Service Act • level of commitment of Permanent Secretaries to the change process


Page 19 • lack of accountability of senior managers • turfism • political interference 5.0 Training Needs There is a perceived need for all permanent secretaries to be exposed to strategic planning. Several persons have expressed the need to be trained formally in strategic planning. There is also the need to train persons in evaluation techniques since they are charged with the responsibility of monitoring and evaluating corporate plans. Other areas for training include indicator development and measurement. There must also be a focus on relevant linkages with other ministries in the corporate planning exercise spearheaded by the Ministry of Finance and Planning for a holistic integrated approach. 6.0 Summary and Conclusion Strategic planning can be taken to a more productive level in Dominica if there were a coordinating mechanism for integrated planning at the ministerial level, thereby providing a link between the sector plans. Given the present lack of an overall development plan, Ministries now plan in isolation of each other. A clear vision and mission of the public service of Dominica needs to be the overall guiding principle on which sectoral and Ministerial planning takes place. To this end, the proposed Integrated Approach to Development Planning should be pursued with vigour. It is anticipated that in keeping with government’s thrust in integrated planning, the capacity of the Reform Management Unit can be further developed to provide coordination and integration of reform activities at the macro level, to reduce overlap, maximise the use of resources, enhance collaboration and communication between sectors and ultimately improve the capacity of the public service to facilitate national development. Saint Lucia 1.0 Background The Government of St. Lucia has long been an active participant in and the beneficiary of Regional Public Sector development initiatives dating back to the 1980’s and earlier. In this sense, Public Sector Reform (PSR) is an ongoing activity. However, in recent years, there have been mounting calls for increased productivity and sensitivity to consumers of public goods and services. This coupled with growing concerns of value for money has produced a general consensus that the administrative machinery of the State must be improved to meet the demands of a rapidly changing domestic and global environment. Public Managers interviewed during this brief survey clearly recognized the need for the entire Public Service to undergo the process of self-assessment and renewal, if the competencies of public officers are to be effectively harnessed to achieve stated targets. 2.0 Formalisation of the PSR process


Page 20 In January 1998, Cabinet established the Office of Public Sector Reform with the following mission:

Preparation of a Green Paper on Public Sector Reform Coordination of consensus building activities Preparation of the White Paper Preparation of a detailed Action Plan Submission of Memoranda to Cabinet for Approval Organisation and Monitoring the implementation of reform Evaluation and reporting on the outcome of reform activities

With the publication of the White Paper, the underlying philosophy, vision, scope and Strategic Objectives of the PSR process have been clearly conceptualised, articulated and disseminated to a broad national audience. A PSR Commission was inaugurated on November 23, 1998 with the Prime Minister in official attendance. The Commission is mandated to garner broad-based views on issues of public sector reform; refine, strengthen and elaborate on the draft Green Paper, resolve disagreements on problems and recommendations; and endorse the organisation and style of the White Paper Four strategic objectives have been identified for PSR, viz. .1 Maximize the scarce resources of the State through the coordination and

integration of ongoing actions and the sustaining of planning culture in the Public Service;

.2 Provide prompt, high quality and cost-effective service that the citizens value and in so doing significantly raise the prestige of the Public Service;

.3 Develop a customer sensitive Public Service; 4. Improve transparency, accountability and governance in the business

of the State; Strategic Planning Features identified include the adoption of the integrated development planning approach as part of the Strategic Planning Concept and the strengthening and development of Planning Units within Ministries. The establishment of a National Sustainable Development Council and the use of retreats and consultation to develop plans have also been targeted. 3.0 Way Forward and Plan of Action With the recent publication of its White Paper, Saint Lucia is now poised to launch its proposed Plan of Action for implementation of the Public Sector Reform Process at the macro level; and - at the specific level, the Education, Finance and Planning and Health Sectors are relatively more advanced in this respect. The Ministry of Finance has also received a considerable stance in its modernisation programme under the well-documented, Eastern Caribbean Economic Management Programme (ECEMP) funded by the Canadian International Development Agency (CIDA). The implementation of the Reform will be as much as possible Ministry specific. In that regard the responsibility for reform within each Ministry/Department will be that of the Permanent Secretaries and Heads of Department. To facilitate this process each Ministry will


Page 21 establish its own Internal Reform Committee. The Internal Reform team will serve as a consultative body and act as a liaison with the Ministry of the Public Service and the Office of Public Sector Reform. These Internal Reform Teams will also include a representative of the appropriate staff Associations. The Ministry of the Public Service is, however, seen as vital to institutionalising the Reform Initiative, in that it will serve as a clearing house for information, and provide technical advice to the various reform teams. The role of the Trade Unions and Staff Associations representing employees of the Civil Service should also be recognised in the process of initiating the acceptance of the Reform process. 4.0 Summary and Conclusion All public sector reform activities in Saint Lucia are at the very inchoate stages. The greatest challenges envisaged and identified by the Public Sector Managers were: .1 to access and obtain the necessary human, technological and financial

resources necessary to take the implementation process forward; .2 to attract and retain the qualified and competent human resources necessary

for the effective execution of PSR; .3 to mount both intensive and extensive training programmes to develop the

required competencies and skills of public sector personnel engaged in PSR; and

.4 to create and nurture a collaborative mind-set as well as provide the necessary incentives to motivate all public sector employees to accomplish the set goals of PSR.

It is also the considered view of public sector officials that the intervention of the current Project constitutes a timely, strategic and beneficial intervention in the PSR progress of CARIFORUM countries. All officials stressed the fact that St. Lucia’s PSR plans and proposals have been conceived within Sub-regional (OECS) and Regional (CARICOM) contexts, and welcomed the opportunity to share this experience with their counterparts in other Caribbean Countries. St. Kitts and Nevis 1.0 Background A Draft Outline Plan of Action for the achievement of excellence in the Public Service of St. Kitts and Nevis was developed at a Retreat held between Permanent Secretaries and Heads of Departments on October 17, 1992. The Retreat brought together top public service officials for the purpose of examining critical problems and issues affecting public service management, and developing strategies for improved public service management. It identified measures to address the issues of communication and cooperation, job descriptions, and productivity, motivation and rewards. One of its main recommendations was that a Plan of Action should be drawn up to implement suggested the solutions and strategies. The Action Plan is therefore a direct response to that recommendation. The Plan is intended to serve as a guide for specific activities aimed at improved performance and management in the Public Service.


Page 22 2.0 Objectives of the Action Plan The Action Plan developed in response to public service reform has as its principal objectives: - - To establish and maintain appropriate management procedures and systems in

order to ensure effective and efficient service to the public; - To develop human resources in order to satisfy the needs of the Public

Service; - To enhance job satisfaction and stimulate professional growth and

productivity; and - To initiate administrative reform in the Public Service. A Medium-Term Strategy Paper (MTSP) 2000- 2002 has also been formulated which sets out the policies and approaches which will be pursued by the Government in an effort to sustain growth and development in the changing world environment. This MTSP looks at macroeconomic structure and performance, details the Government’s policy agenda for the medium-term and examines the Public Sector Investment Programme (PSIP). The objective is to use the available resources optimally, to generate sustainable growth while at the same time ensuring that the benefits of prosperity are widespread. 3.0 Public Sector Reform Consistent with this strategy, St. Kitts and Nevis has sought assistance from the Commonwealth Secretariat regarding civil service productivity and reform. Although the terms of reference applicable to this request have not yet been drafted, there are a number of tasks that the Government sees as integral components of a public sector reform exercise. These include:

- the conversion of the Establishments Division into a Human Resources Management Department.

- the development of job descriptions; - the reclassification of posts; and - the rewriting of General Orders.

From the standpoint of an improved human resource management environment, the Establishments Division has identified four (4) areas that require attention: -

- there are civil servants who do not possess the formal qualifications for advancement but have many years of experience. To allow these persons an opportunity to advance, a standardised Civil Services Examination covering administrative areas should be developed.

- improvements are needed in management development techniques in the Establishments Division. Job rotation is a primary focus, seen as complementary to this thrust.


Page 23 4.0 Current Status of PSR in St. Kitts and Nevis While there has been a series of local and technical assistance initiatives since 1992, Public Sector Reform has not been formalized in the Federation. This may be partially due to a change in the Administration, existing preoccupation with the Constitutional Review Activities, and managing a succession of devastating storms. Laudable efforts are evident in various sectors. However, the general approach to implementation remains piecemeal. Consequently, there is an urgent need for coherence and structure to be introduced into the PSR Process of the Federation. For instance, although Public Sector Managers and Supervisors received training from the Commonwealth Secretariat (COMSEC) and were mandated to establish a new Performance Appraisal System, the absence of job descriptions, desk files, work plans, goals and objectives renders this an impossible task. 5.0 Priority Technical Assistance Needs COMSEC has identified these as priority requirements to bridge the gaps indicated above. Training Courses in Leadership and Customer Service are also urgently needed to start the process moving. Notwithstanding the major internal accomplishments, technical assistance is urgently required in the following areas germane to PSR: Budgeting and Statistics Physical Planning Economic Planning Specialized training is also required in the following areas: Financial Forecasting Financial Programming Projections for GDP, Population Macroeconomic Management Project Cycle Management Negotiation and Procurement Economic Analysis and Policy Formulation Project Evaluation. 6.0 Summary and Conclusion There was a widespread sense of the need for cohesion in Public Sector Management throughout all ministries and departments visited, and the PSR Implementation Programme is urgently anticipated. There is a general problem of attracting, motivating and retaining qualified, competent staff. There is also a challenge and opportunity for redeployment of the vital human resource assets of the Public Sector by channelling their energies into areas of pressing social need. The imminent establishment of a Public Sector Reform Department, headed by a Permanent Secretary within the Office of the Prime Minister is timely to expedite resolution of the problems and challenges of the PSR process in St. Kitts and Nevis.


Page 24 St. Vincent and the Grenadines 1.0 Background The Government of St. Vincent and the Grenadines comprises 10 ministries. The Public Administration is served by 215 Public Service Managers with a total of 6,608 persons in the central civil service. 17.8% of GDP is derived from government services. Over the past two years, the Government of St. Vincent and the Grenadines has shown a continued commitment to the development and modernisation of the Public Service. The underlying drive is the desire to promote a more results oriented culture within the organisation of the public service. To this end several reform initiatives have been embarked upon. 2.0 Main Focus of Public Sector Reform A main focus of the reform efforts has been the development of a new financial management system and a new performance management system. This is designed to improve government fiscal planning and management by linking the budget, accounting, cash management and financial reporting processes. It is complemented by the introduction of the new performance and programme budgeting system and requires each ministry/department to develop its own programme of activities. At the Ministerial and Departmental level, annual Corporate plans are developed utilising a strategic planning process. Interviews with persons directly involved in this process revealed that not all Ministries have been able to implement the process of strategic planning as effectively as others. Most Ministries such as the Ministry of Health have institutionalised the position of Planner, however due a lack of human resources and technical expertise a persistent complaint has been that the work load is too great for one person who usually also has other responsibilities. There is no department/unit of planning within the Ministries and therefore the planning function suffers from a lack of follow through and adequate forecasting. It is noteworthy that the Government of St. Vincent and the Grenadines had already begun an internally driven process to review the Financial Rules and Regulations before the ECEMP initiative came into effect. The Ministry of Planning is responsible for the overall Coordination of the Financial Management Reform. It is aimed at developing an objective and practical merit-based reward system and at providing information on the performance and capacity of individual employees that ought to guide the process of training and development and succession planning. To ensure proper coordination of this exercise, a Human Resource Planner is to be employed by the Service Commission Department who will be responsible for development and management of human resources within the public service. This officer is to be supported by a cadre of Human Resource Managers identified within all Ministries. Currently, these officers are responsible mainly for liasing with the Chief Personnel Officer on matters related to discipline and employment. At the moment no real authority resides with these officers who are identified by and are accountable to their Department Head, where they differ, or Permanent Secretary.


Page 25 The reclassification of Public Servants is also being considered and to this end, a steering committee has been established to draft the terms of reference and determine procedures for conducting the reclassification exercise. It is hoped that this can be completed by the third quarter of 2001. Also critical will be the assessment of senior managers including the Permanent Secretaries. It is hoped that this can be accomplished by perhaps utilising a committee of senior Government personnel comprising another Permanent Secretary and the Chairperson of the Public Service Committee. This will go a long way in winning the confidence of employees in the performance appraisal system and also in instilling a measure of accountability currently lacking in public sector management. Within the next two years it is also expected that development/assessment centres will be in place. The Office of the Administrative Reform Unit is responsible for the coordination and management of the performance management reform efforts. This unit was established in 1991 under the Ministry of Finance and Planning but was relocated to the Service Commission Department in 1999. The revision of the instrument of Public Service Regulations is also the focus of attention by the Administrative Reform Unit. In recognition of the critical need to enhance the regulatory environment necessary to facilitate the operations of the systems mentioned above, the following are currently under review: the Civil Service Orders, Foreign Service Orders, Public Service Commission Regulation and the Financial Regulations. It is expected that this review will be completed by the end of year 2000. 3.0 Status of Strategic Planning in Government Ministries and Departments Currently the planning function within the Ministries of the Public Service of St. Vincent and the Grenadines is focussed on the preparation of corporate plans. Therefore there is a relatively comfortable and growing level of familiarity with the process of strategic planning particularly in Ministries such as the Ministry of Health where sectoral plans for a five-year period had been the norm prior to the introduction of Corporate Planning. It should be noted nonetheless that there is still room for improvement especially in the Ministry of Health, there is need for an information data base which would provide the basis for more focussed planning. Within the Ministry of Planning an officer is assigned to each Ministry to assist in the preparation of the corporate plans. There is also provision for an internal review committee which will function as a monitoring mechanism. It is hoped that this committee can be operationalised as a matter of priority. 4.0 Obstacles It was suggested that what is needed in terms of Strategic Planning within the Government of St. Vincent and the Grenadines is more a change of attitudes than technical competence. A major obstacle identified relates to the need for Permanent Secretaries and other Senior Public Officers to be evaluated and held accountable for the performance of their departments and by extension their staff.


Page 26 5.0 The Way Forward Although the reform initiatives being undertaken in St. Vincent and the Grenadines have evolved from varying catalytic experiences, there is an awareness among persons interviewed of the relevance of each effort to the other. There is also an ongoing effort to link these efforts as evidenced by the collaboration between the Administrative Reform Programme Unit and the Ministry of Finance and Planning and the relocation of the ARP to the Services Commissions Department and Training Division in 1999. The process of strategic planning is well advanced in certain Ministries such as the Ministry of Health which produces a five-year sector plan comprising departmental plans. Since the introduction of Corporate Planning within Ministries and Departments closer attention is given to the day to day management of scarce resources. Based on the responses of persons interviewed and the implications of the operationalisation of the corporate plans in terms of monitoring, and responding to unpredictable financial and other constraints, most large Ministries would benefit from a core of strategic planners whose main responsibility would be the implementation and monitoring of ministry plans. This report recognises that within most Ministries a planning officer has been identified, however, the study has shown that the Planner is usually an officer with other major responsibilities and therefore not in a position to devote the time required to properly carry out the planning function. In this regard, a work load analysis is urgently required with the main purpose of supplementing the implementation of the performance appraisal system and secondly to justify the expansion of in-ministry planning units. The need for persons charged with the management of the public service to be trained in Strategic Planning was reiterated by persons interviewed. This need was previously identified by a CARICAD Training Needs Assessment for Senior Public Sector Managers in St. Vincent and the Grenadines in 1999.


Page 27 Group 31 Barbados 1.0 Overview of Public Sector Reform Activities - 1995 - 2000 The Public Service of Barbados comprises 18 ministries, sub-divided into 12 Divisions and 72 departments. The Ministries and Divisions are managed by 21 Permanent Secretaries and 19 Deputy Permanent Secretaries. These ministries and divisions have responsibility for a number of state-funded Statutory Boards. The Personnel Administration Division is responsible for the administration of 3 Services Commissions- the Police, the Public and the Judicial and Legal Service Commissions. The Public Service currently employs approximately 17967 persons, of these 16777 are established officers and 1190 are temporary employees. The Police Service Commission employs 1263 persons and the Judicial and Legal Service, 64 persons. Sixteen thousand, six hundred and thirty-nine (16639) persons are employed by the Public Services Commission. Of these 2704 are teachers and the remainder 13935 make up the general service. The Office of Public Sector Reform (OPSR) was established in February 1997. It facilitates the development, coordination and implementation of the public sector reform programme. The Office has been directly involved in the following areas:

- Developing strategic plans - Conducting organizational reviews - Establishing Customer Charters - Establishing Internal Reform Committees (IRCs) - Developing and implementing new management initiatives such as the Employee

Assistance Programme (EAP) - Communicating public sector reform initiatives (e.g. Year of Customer Service,

Publication of Quarterly Newsletter) Among activities undertaken by the Management Services Unit (MSU) and OPSR since 1995 are: Project/Activities 1995 1996 1997 1998 1999 2000 Total Developing Strategic Plans - - 3 3 5 11 Organisational Reviews - 7 1 8 4 2 22 Customer Charter - 1 1 1 3 Establishing IRCs - --------------------------------- 52 Employee Assistance Programme - - - (1)-------------- 1 Communicating PSR initiatives - --------------------------------- 2.0 Status of Strategic Planning and Organisational Reviews Eleven (11) strategic planning exercises were conducted between 1997 to present. In almost 1. The Report of the Consultant on Guyana and Trinidad and Tobago was not received for inputting into this Preliminary Summary


Page 28 every case where these plans have been submitted in draft, feedback is required in order to complete the exercise. The basic information however in the draft submissions have been used in strategic plans prepared by some ministries/departments/agencies to support budgetary proposals. Common trends and recommendations in these plans are as follows: .1 Need for a strategic approach to human resource planning. This would

include succession planning. .2 Need for demand forecasting to improve performance management. .3 Need for computerized human resource management information system and

the general use of information technology to improve efficiency. .4 Need for more job analyses to generate relevant job descriptions and training

specification as well as the numbers and kinds of jobs. .5 Need to implement new policy initiatives such as human resource

management policy, a training policy, etc. .6 Need for new systems and procedures to govern public service e.g. Public

Service Act, Code of Conduct. .7 Need for improved service delivery - the public service still takes too long to

respond in relation to business activities. .8 Need for better monitoring and evaluation of projects and programmes. .9 Need for increased productivity. Twenty-two (22) organisational reviews were conducted between 1995 and present. Seven (7) of these were conducted by the Management Services Unit prior to and during 1996. Although there have been more successes in this area, a number of ministries/departments/agencies have not followed-up on the implementation process. The Office of Public Sector Reform has indicated in every submission that it is available to assist with the implementation stage. However, it may be noted that some implementation measures have been taken without support and knowledge of OPSR. Several specialised programmes have also been specially set up with the overall aim of improving public service performance and morale. These include:- .1 the Customer Charter programme - intended to improve the manner and

timeliness in which business is conducted in departments dealing with the public on an on-going basis. The programme was initiated at three (3) departments, viz the Immigration Department, the Licensing Authority and the Registration Department. There has been much success in this area with a number of meaningful initiatives being accomplished. The OPSR continues to encourage the management of these departments to implement outstanding recommendations.

.2 the Employee Assistance Programme (EAP) aims to provide counselling and

professional services to government employees whose performance is adversely affected by personal problems. The programme has been very successful. The OPSR has contracted with a firm Network Services Centre Inc to provide these services.


Page 29 .3 the Year of Customer Service is project which was set up to heighten the

awareness of public sector agencies to the delivery of quality service to the public. The programme has been introduced in a number of ministries and departments.

3.0 Other Major Reform Initiatives - New Public Service Act (being drafted) - Revised Performance Appraisal System (under review) - Labour Legislation (under review) - Smart Stream Accounting System (on-going - to be expanded) A communication strategy paper has also been prepared in draft. Plans are being made to expand and promote the Public Relations programme for Public Sector Reform. The Television, Print and Radio media will be utilized in this regard. The newsletter ‘A Challenge to Change’ continues to be published and disseminated. 4.0 Challenges being experienced by OPSR in above areas The Office of Public Sector Reform reported experiencing a number of challenges These are as follows: a) Slow rate of response to strategic planning from some ministries identified to undergo

this process. The Personnel Administration Division proposes to pilot the new Performance Appraisal System in the four ministries identified to complete strategic planning processes. This system, which is results-oriented uses strategic objectives developed by each Ministry/Department to identify and define annual targets for each employee. The five Ministries are: Home Affairs, Civil Service, Attorney General, Finance and Labour.

a) The slow pace of implementation of the initiatives introduced by the Office. a) Poor response to submitting relevant information, arranging meetings, completing

questionnaires, etc. a) The absence of coordination among those agencies introducing reforms and the Office

of Public Sector Reform. The above challenges are compounded by the fact that the OPSR lacks the necessary authority and leverage to ensure that Ministries and Departments undertake activities in a timely fashion. A number of Ministries/Departments/Agencies were requested to inform the Office of Public Sector Reform of public sector reform initiatives taken by them. The following key public sector initiatives were revealed: - Establishment of IRCs - Training - Improvement of Work Environment


Page 30 - Improvement of Customer Service - Computerisation of Systems - Preparation /distribution of informative literature - Organisational restructuring 5.0 Training Needs The need for training in the following areas has been identified across the board: .1 Strategic Planning .2 Organisational Review .3 Customer Service Skills .4 Project Management .5 Use of ‘select’ Computer Programmes .6 Presentation Skills .7 Organisational/Operational Manuals .8 Inventory/Supplies Management .9 Programme Budgeting/Preparation of Estimates .10 Registry Procedures .11 Government Accounting .12 Human Resource Management .13 Statistical Analysis .14 Business Process Re-engineering .15 Managing Change Workshop 6.0 Goals The OPSR will seek to: .1 Deepen the awareness of Public Sector Reform .2 Develop a culture of customer orientation .3 Facilitate the effective and efficient delivery of public services .4 Develop a professional and performance-oriented public service .5 Establish linkages with institutions in area of public sector reform .6 Develop an in-house capability .7 Promote an organizational structure that builds professional competencies and

fosters career mobility and establish efficient operating systems .8 Train a high calibre of professional staff and develop a cadre of public sector

internal consultants. 7.0 General Comments .1 Those Ministries/Departments/Agencies which are responding positively to

the reform movement must be ‘cultivated’ and used as examples to galvanise ‘sluggish’ sectors into action.

.2 Public Sector Managers must seek to secure funding for meaningful reform

initiatives.


Page 31 .3 The Office of Public Sector Reform must reflect those important qualities of

good management, enthusiasm and cohesiveness in guiding the reform movement.


Page 32 Collaboration with the Dominican Republic and Haiti 1.0 Background CARICAD first established professional linkages with the Dominican Republic in the area of public sector management with the Pontificía Universidad Católica Madre y Maestra (PUCMM) through its EU/CARIFORUM Project. The Caribbean University Level Programme in the Public Sector Management has provided an excellent vehicle for collaboration and cooperation in serving mutual objectives for public sector development in the region. The current Project envisages more meaningful collaboration with the Dominican Republic and Haiti for a comprehensive and integrated regional action programme on reform and modernisation. In particular, the practical experiences of discrete countries in advancing strategic planning and public reform can be particularly useful. Provision has been accordingly made under the Project to achieve the following targets in the Dominican Republic and Haiti: .1 to undertake familiarisation and programming missions to management

training institutions; .2 to collaborate on management audits of key public sector agencies; and .3 to negotiate and sign a Memorandum of Understanding to describe modalities

for project and on-going collaboration with CARICAD and related institutions.

2.0 Status of collaboration 2.1 Dominican Republic The responsibility for public sector reform and modernisation is vested in the Presidential Commission for Public Sector Reform and Modernisation of the State Agencies. Several important analyses have been completed on the reform of State agencies, with proposals for devolution of responsibilities, and the decentralisation and de politicisation of public service functions. The accompanying questions of legislative reform and the apportionment of physical and other resources have been broached. Several pieces of legislation have been drafted to catalyse and govern the reform process among which is the May 1991 Ley de Servicio Civil y Carrera Administrativa y su Reglamento de Aplicación. This piece of legislation defines the main operating precepts for employment, rights, and benefits of public sector officials. It is instructive to note that reform activities have been bifurcated in terms of policy direction and implementation. As such, the National Public Administration Institution, (INAP) created under the aforementioned law, has primary responsibility for quality public sector training and capacity strengthening to propel reform activities. On the other hand, the National Office of Personnel and Administration (ONAP), which was also created to further the aims of the Civil Service Legislation, serves as the human resource management arm for the public sector and channels technical support to ministries and


Page 33 departments to achieve a well motivated, committed and performance-based public service. The Project Team will maintain contact with these three (3) main agencies and with the PUCCM to develop a discrete cooperation programme with the Dominican Republic. 2.2 Haiti Haiti is embarked upon a comprehensive programme for socio-economic reform and development, which has been driven by and responds to the June 2000 Common Country Assessment completed on the country by the United Nations. The areas of government, the economy, the environment, culture and social development are among some of the targets of the wider national reform process. A Vision Statement for the year 2020 has been completed which contains short-term goals to be achieved in each subject area. A Strategic Framework has been prepared to govern this reform process and to programme the international resources. Within this framework, specific activities and programmes have been developed for a public sector reform. The National Presidential Commission on Administrative Reform (CNRA) established in December 1996, originally had as its mandate the articulation of a legislative and administrative reform policy for the entire public sector. Requisite human resource and institutional reforms were also contemplated under this exercise. CNRA has completed a diagnostic review of the Haitian Public Service, and since submitted for approval and implementation several documents outlining the preferred reform and restructuring processes for Government Ministries and departments. A major focus of the exercise has been to decentralise public sector agencies and devolve authority to the rural communities which are currently patently irrelevant within the national development context. While each government department established a special strategic committee to consult and collaborate with CNRA on the reform process, the recommendations for change are not being eagerly embraced. Several departments have put forward varying policy directions on administrative reform, notwithstanding the clear mandate of CNRA. The major weaknesses detected in the national diagnostic review, are perhaps indicative in coming to terms with this type of polarisation and recalcitrance. Generally, there was found to be a lack of clarity in defining and implementing government policy - directly linked to lack of empowered decision-making. Secondly, the public sector was not suitably trained, organised or equipped to conduct its mandates. The absence of financial and human resource management negated action at several levels. The themes of decentralisation and implementation have therefore resounded strongly in ongoing reform desires. An ambitious programme of initial and continuous training has also been formulated to retool and upgrade public sector officials at all levels. However, the question of “reform desires” rather than reform objectives, is cogent as Haitian authorities quickly admit the innate and derived limitations in propelling development forward. Firstly, they admit that the political climate has not promoted a sustained commitment to reform and development. Secondly, donor agencies have tended to lose interest and zeal for mounting technical assistance when faced with continuing political and bureaucratic apathy.


Page 34 This notwithstanding, Haitian authorities, including the Cabinet Secretary, expressed their tremendous appreciation for the country’s inclusion within the mandate of the current CARIFORUM Project. As an initial point of departure, Haiti would welcome cooperation and assistance in the following areas: .1 streamlining their administrative reform process; .2 participating in national debates among key stakeholder groups, (unions,

chamber s of commerce, agriculture, women) on reform, by sharing practical experiences and successes in the region to drive reform activities;

.3 providing training and development programmes for strategic thinking,

planning and implementation at the political and senior administrative levels. .4 developing a special cadre of trainers in Haiti to sustain strategic planning and

implementation programmes - training of trainers. .5 the convening of a National Seminar on Public Sector Reform, which would

provide concrete data on regional and international and regional “best practices”, and allow for the ventilation of major concerns and obstacles to the Haitian reform process with a view to arriving at a synthesised implementation programme and strategy to achieve the administrative reform.


Page 35 Appendix 1 DIAGNOSTIC REVIEWS OF STRATEGIC PLANNING IN CARIBBEAN PUBLIC SERVICES (CARIFORUM/EDF PROJECT NO: 8 ACP RCA 005) Terms of Reference Background and Context CARICAD has been designated as the executing agency for a project funded by the European Development Fund (EDF) entitled “Strategic Planning in Public Services” of the 15 Member States of CARIFORUM. The substantive areas to be addressed by the project will enable the promotion and adoption of strategic planning and management skills, systems and structures by the public sector administrations of CARIFORUM Member States. The main objective is to enhance and improve the formulation, coordination and implementation of development policies and programmes. A key element of the project will be the strengthening of regional collaboration in public sector reform. This will be done through the objective assessment of available human resources, enhancing human resource planning data bases and continued building of CARICAD’s capacity to provide strategic planning services. The substantive areas to be addressed by the project will enable the promotion and adoption of strategic planning and management skills, systems and structures by the public sector administrations of CARIFORUM Member States to ensure conformity with principles of good governance and greater effectiveness in the use of scarce public sector resources. The output/results for the First Year’s Programme of activities will ensure the mobilisation of human resources and organisational infrastructure for orientation and planning by CARICAD, in collaboration with Member States and focal points, to assess the status and effectiveness of strategic planning capabilities in the public sector of each Member State and organise appropriate training activities for senior management personnel. In addition, the project will establish and convene a Working Group on Public Sector Reform, comprising representatives of CARIFORUM Member States, the European Commission, CARIFORUM Secretariat and cooperating agencies, within its first year of activities. Working Group on Public Sector Reform: A Two-fold Purpose The Working Group on Public Sector Reform will be inaugurated in Barbados on December 08, 2000. A major output of this Working Group will be a Report on the status of public sector reform and strategic planning activities in CARIFORUM Member States. This Report is to be informed by the activities of the present diagnostic survey. The proposal for the establishment of a Regional Working Group on Public Sector Reform and Development emanated from the Caribbean Ministerial Consultation and Workshop on Public Sector Modernisation and Development, held in November, 1998, at Nassau, the Bahamas. Many of the findings and recommendations of that meeting are still relevant and applicable to the modernisation process; some have been implemented to varying degrees in the Member States. At its inaugural meeting in December, and as part of its ongoing mandate, the Working


Page 36 Group will consider initiatives being taken by Member Countries to enhance their capacity implementation and policy frameworks for improved accountability and efficiency in the public sector. Attention will be given to legal and constitutional issues, and capacity building for the delivery of services, by the public sector, taking account of required changes at the policy level as well as other systems and processes related to the “modernisation” of the public sector. The Working Group will also assess the extent of fulfilment of the objectives and recommendations, which were endorsed by the Conference of Heads of Government at the 1995 Summit in Guyana and promote collective exchanges to stimulate implementation of changes in policy, structures, and the behaviour of Government agencies and organs of the State. Where applicable, deliberations of the Working Group will also consider requisite follow-up, elaboration and updating of processes and programmes. Over the lifetime of the Project, the Working Group will also set priorities and monitor the annual Work Programmes for the CARIFORUM Project. Member Country Initiatives The variation in initiatives being pursued by Member Countries to introduce or intensify strategic and corporate planning methods for greater efficiency and effectiveness in public sector management will provide a range of experiences and lessons which may be mutually beneficial. For instance, in Trinidad & Tobago the Ministry of Public Administration conducted an evaluation of the status and impact of a Strategic Review of the country’s Public Service, which was initiated in 1996 with a view “ to re-engineer the Public Service to face the challenges and opportunities of the 21st Century.” For such a review one of the key performance indicators was “development of strategic plans and implementation of these plans.” Under the CARIFORUM-funded project, the proposed diagnostic review of strategic planning methodologies and their application should find the experience of Trinidad & Tobago very instructive. Similarly, the Government of Barbados by means of a Public Sector Reform Unit has prepared a guidelines manual on strategic planning. This has been an instructional device used in workshops with government ministries and departments for the introduction of a strategic planning process as the centrepiece of organisational development and change management throughout the public service. The manual will be helpful for the kinds of data to be collected and analysed in the proposed diagnostic reviews. In addition to the foregoing examples, many other instances can be cited of reform efforts in the Member Countries utilising principles of strategic planning. Scope of Work The deliberations of the Working Group on Public Sector Reform will be informed by the results of the diagnostic reviews of strategic planning being undertaken or proposed in CARIFORUM Member States. To this end, it will be important for the consultants to obtain both generic and specific features of the processes being undertaken. In that regard, a standardised set of questions should be answered by each country review so


Page 37 as to allow a comparative assessment, along with specific features that can be attributed to the approach and effectiveness (outputs and outcomes, to date) obtained at the country-level. The consultant(s) will:

(iv) review and provide an assessment of relevant background literature on Public Sector Reform/Development/Modernisation Programmes/Projects being undertaken by the specified country;

(iv) conduct a field visit of not less than two (2) days in each country, during

which interviews will be held with CARICAD’s Board Member; senior public officer(s) with responsibilities for PSR or corporate planning and/or organisational development; the Chairperson and/or Secretary of the statutory commission responsible for public service matters; representative(s) of a public service union/association; participate in a focus group meeting of relevant stakeholders, where feasible, and consult with any other persons/organisations appropriate for information on the status of strategic planning being undertaken or proposed;

(iv) provide details of the structure, size and scope of the public service;

deployment of personnel in senior, middle and front-line categories; operational units for strategic and corporate planning functions; mechanisms for reform activities; extent of external donor or other assistance; outputs and outcomes (obtained or expected) of reform/ development/modernisation programmes and/or projects.

(iv) comment on any salient processes or projects in place or being contemplated

which may inform the basis of a regional approach on strategic planning;

(iv) outline specific training needs for the realisation of strategic planning objectives;

(iv) provide a Report on the status of (i) to(v) above.

The Report shall be prepared in WordPerfect 6.0 and above ( or MS Word 2000), providing 3 hard copies, free of typographical and grammatical errors, along with a diskette or electronic copy. The date of submission for the Report in form and content acceptable to CARICAD will be not later than November 24, 2000. Qualifications and Experience Consultants are required to have undertaken post graduate training in organisational theory and behaviour, business and or financial administration, strategic planning and/or public sector management, with at least five (5) years working experience on applications of strategic planning principles to public or private sector enterprises.


Page 38 Appendix 2 List of authorities consulted for Diagnostic Review Group 1 Bahamas Hon. Orville Turnquest, Minister of the Public Service Mrs. Anita Bernard, Permanent Secretary, Ministry of the Public Service Mrs. Rena Glinton, Ministry of the Public Service Mrs. Carol Hanna, CARICAD Board Member President, CPSA Jamaica Mrs. Judith Maloney, CARICAD Board Member, Jamaica, Senior public officers with responsibility for PSR and corporate planning including members of: the Ministry of Finance & Planning’s Corporate Planning & Administration Division. The Management Development Division, Office of the Prime Minister (Cabinet Office); The Chief Personnel Officer, Service Commission Department Mr. Edward Bailey, OD, President of the Jamaica Civil Service Association,. Group 2 Antigua and Barbuda Mr. Sam Aymer – Chairman, PSR Reform Unit, MPIPSA Mr. David Matthias – Senior Systems Analyst (Planning), MPIPSA Mrs. Eusalyn Lewis – Chief Establishment Officer, MPIPSA Mrs.. Claudette Anthony – Deputy Chief Establishment Officer, MPIPSA Mr. Jessel Edwards – Establishment Officer (Classification and Negotiations),MPIPSA Mr. Daven Joseph) - Sector Planner, MPIPSA Ms. Yolanda Lake-Goodwin} - Sector Planner, MPIPSA Mr. Peter Quinn} - Sector Planner, MPIPSA Mr. Christopher Sambrano – Client Service Leader, PriceWaterHouseCoopers Mr. Marguerite Estwick- Team Member, PriceWaterHouseCoopers Consultants Ms. Carol Potter – Team Member, PriceWaterHouseCoopers Consultants Ms. Natalie Jones – Team Member, PriceWaterHouseCoopers Consultants St. Kitts and Nevis Mr. Joseph Edmeade – Chief Secretary, Office of the Prime Minister (OPM)Mrs. Torfrida Rochester – Assistant (Training) to Permanent Secretary, Establishment Division, OPM Mrs. Ryllis Vasquez – Assistant (Public Service Affairs) to Permanent Secretary Estates Division, OPM Mrs. Venetta Hobson – Moving – Human Resource Manager, Nevis Administration Ms. Patricia Westcott – Senior Budget Analyst, Ministry of Finance and Planning Mr. Howard Richardson – Economist, MF&P Ms. Beverly Harris – Chief Statistician, MF&P


Page 39 Ms. Amicia Mussenden – Chief Economist, MF&P Ms. Hilary Hazel - Senior Project Officer, MF&P Mr. Patrick Williams – Physical Planner, MF&P Saint Lucia Mr. Wilbert King - Permanent Secretary, Ministry of the Public Service (MPS) Mr. Mark Louis - Director, Public Sector Reform Unit, MPS Mr. Marcus Edward - Corporate Planner, Corporate Planning Unit, Ministry of Education, Human Resource Development, Youth and Sports Mrs. Marcia Jules - Permanent Secretary, Ministry of Health, Human Services Family Affairs and Women (MHHSFAW) Mr. Darrel Monthrope-Chief Planner, Planning Unit, MHHSFAW Mr. Isaac Anthony - Accountant General, Ministry of Finance and Planning, (MF&P) Mrs. Margaret Thomas -Deputy Controller of Customs, Customs and Excise Department, MF&P Dominican Republic Dr. Jose Oviedo - Director, Caribbean University Level Programme in the Public Sector Management , Pontificía Universidad Católica Madre y Maestra (PUCMM) Dr. Tirso Mejía-Ricart - Director, Commission for Public Sector Reform and Modernisation of the State. Haiti Mr. Antoine Ambroise, Cabinet Secretary, Office of the Prime Minister Mr. Charles Cadet, Director, National Commission for Administrative Reform (CNRA) Mr. Anthony Barbier, Assistant Director, Training and Reform, CNRA Mr. Tony Cantave, Assistant Director, Decentralisation and Local Administration, CNRA Mr. Raoul Baptiste, Human Resources and Planning, CNRA Mr. Pierre Louis, Legal Officer, CNRA Mr. Georges Conel, Director of the NGO Coordination Unit, Ministry of Planning and External Cooperation Mr. Gerbier, Director of External Cooperation, Ministry of Planning and External Cooperation Mr. Wilson Laleau

Documents

Summary Report - Diagnostic Reviews of Strategic …unpan1.un.org/intradoc/groups/public/documents/caricad/unpan007851… · Preliminary Report: Diagnostic Review of Strategic Planning