Description
Professionalism can be looked at as a multidimensional concept. Where by the manner in which a discipline has evolved, how it is organized, managed, implemented and the parameters set, etc., make it a distinct clearly identifiable approach to societal or material problem.
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SESSION 6
DISCUSSION PAPER 2
Workshop on "Promoting Professionalism in the Public Service: Strengthening the Role of
Human Resource Managers in the Public Sector for the Implementation of the Africa
Public Service Charter"
14 to 18 March 2011 in Addis Ababa, Ethiopia
PUBLIC SECTOR HUMAN RESOURCE MANAGERS PROMOTING
PROFESSIONALISM AND IMPLEMENTING THE PUBLIC SERVICE CHARTER
AT THE NATIONAL LEVEL: FACILITATING AND INHIBITING FACTORS AND
STRATEGIC ACTIONS
By
Dr. Faisal Issa, Director: Public Service Management, Office of the
President, Republic of Tanzania
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PUBLIC SECTOR HUMAN RESOURCE MANAGERS PROMOTING
PROFESSIONALISM AND IMPLEMENTING THE PUBLIC SERVICE CHARTER
AT THE NATIONAL LEVEL: FACILITATING AND INHIBITING FACTORS AND
STRATEGIC ACTIONS
1. WHAT IS HUMAN RESOURCE MANAGEMENT?
African countries operate in a dynamic global environment and
often, as changes happen elsewhere, developing countries move in
stride to adopt, adapt to and accommodate the new
developments. The 1990s was when the new concept of Human
Resource Management was introduced in Africa. Personnel
management departments and units were changed into human
resource functionary units, but mostly without any significant
changes in people management practices. The mainstream
literature propounds that human resource management is a result of
the evolution of Personnel Management. In response to the changes
in the management and business environment, human resources
management had to assume a strategic role rather than an
administrative or operational role associated with the more
traditional approach(Beaumont,1992;Schuler and Huber, 1993).
The literature on Human Resource Management identifies four
characteristics which distinguish Human Resource Management,
giving it an ‘architect’ role, from traditional personnel management:
integration of human resource policies and practices with
organizational strategies, a holistic; coordinated approach to
policies and practices for managing people at work; a primary focus
on the individual employee as opposed to the collective relations
within the organizations; strong organizational value and culture
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emphasizing a sustainable match between the values of employees
and the organization, whereby key elements of HR add value to the
organization and returns on investment is simultaneously achieved
(Storey, J. 1992).
Other important features of Human Resource Management
designed to increase employee commitment and motivation
towards organizational goals while meeting the personnel needs of
employees include the following: greater employee participation in
work organization and management, and the strengthening of the
role of line managers through approaches such as quality circles;
increased internal public relations through corporate videos; joint
consultation committees, with membership open to all employees
regardless of union membership; employee share-ownership
schemes; and performance appraisals to determine training,
development and performance feedback. Individualized pay:
determined by performance, competencies and market factors,
rather than cost of living or collectively negotiated increases; and
single status employment conditions and benefits removing the
distinction between ‘manual’ and ‘staff’ employees (Anthony,
Perrewe and Kacmar, 1996).
2. WHAT IS THE ROLE OF HUMAN RESOURCE MANAGERS?
Previously, complexity was associated with business organizations
operating in competitive environments. The emergence of the New
Public Management Model has changed the landscape, and public
sector organizations face comparable levels of complexity. There is
more demand for quality and reliable services from the public and
there is more competition for financial and human resources. Public
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institutions have to legitimize their existence, necessitating the
adoption of complex outcome-focused systems and procedures.
NPM model is a result of the quest for minimal government, it is about
reinventing government through an emphasis on steering, as
opposed to rowing; empowering communities rather than only
delivering services; encouraging competition rather than
monopolies; enabling public services to be driven by their missions
rather than rules; concentrating on earning, not just spending;
decentralizing authority, and solving problems by leveraging the
market-place, rather than simply creating public programs (Gaebler,
1992; Ndumbaro,2006) .
When Human Resource Management takes a strategic approach to
organizational issues, Human Resource Management views all
managers as human resource managers. HRM issues are not simply
the province of the human resource unit. Rather, all managers must
take responsibility for the efficient and effective utilization of their
employees. By the same token, human resource managers view their
role as essentially supportive of the operating line managers. That is,
they should see their role as advising, helping, and providing expert
guidance to line managers on human resources issues (Anthony,
Perrewe and Kacmar, 1996).
HRM is seen to support organizational business strategies through
internally consistent practices and policies and expected to
contribute to the following goals: productivity or service quality
enhancement through increased contributions of individuals and
teams; statutory compliance; gaining competitive advantage
through employee participation; workforce flexibility and
empowerment; and developing a supportive organizational culture
through organizational development (Schuler and MacMillan, 1984;
Schuler, 1992).
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In human resource management, HRM strategies - human resource
planning, recruitment and selection, performance management,
reward management, human resource development, labour
relations– are translated into policies and actions which are to be
implemented by HR specialist and generalist supporting the line
managers, who now have HR responsibilities in addition to their
functional work of finance, engineering, etc.
3. WHAT IS PROFESSIONALISM IN HUMAN RESOURCES MANAGEMENT?
Professionalism can be looked at as a multidimensional concept.
Where by the manner in which a discipline has evolved, how it is
organized, managed, implemented and the parameters set, etc.,
make it a distinct clearly identifiable approach to societal or
material problem. The Oxford Dictionary of English (2003) describes
professionalism as both the competence and skills expected of a
professional and the practice of an activity, by professionals rather
than amateur players. There are debates as to whether Human
Resource Management deserves to be considered a profession. This
is because either people with ,minimal training on the discipline are
given responsibility for the function of our organizations, or the
absence of accreditation bodies for human resource management
professionals (such as the engineering registration board in many
countries). Nonetheless, it is argued that HRM is increasingly
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becoming a profession, as it has evolved from traditional personnel
management to its current level, in which Senior HR officers are
expected to be functional experts, capable administrators and
business oriented internal consultants with global awareness (Schuler
and Huber, 1993).
The African Public Sector Human Resource Managers Network has
been created in recognition of the need to create professionalism in
the way in which we manage human resources in the public sector.
Furthermore, its goal is also to provide a forum in which countries’
can share experiences and best practices, whilst reminding each
other that public sector efficiency and its effectiveness in achieving
desirable outcomes can only be realized if we have a motivated
and satisfied public sector employees. The Network is a pivotal
milestone to professionalism in Human Resources Management in
Africa.
Heskett James L. and Schlesinger L. (1994) in their book the “Service
Profit Chain – How Leading Companies Link Profit and Growth to
Loyalty, Satisfaction and value,” associate internal service quality
to a desired level of staff satisfaction that induces both employee
loyalty, retention and employee productivity, leading to increased
creativity and innovativeness to improving service quality, quantity
and types. The final outcome is profit and increased market share in
an increasingly competitive environment.
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This Service Profit Chain model is relevant to public sector
organizations as the emergence of the New Public Management
Model has changed the landscape and public sector organizations
face comparable levels of complexity as the private sector. There is
more demand for quality and reliable services from the public; there
is more competition for financial and human resources and public
institutions have to legitimize their existence necessitating the
adoption of complex outcome focused systems and procedures.
NPM model is considered a result of the quest for minimal
government; it is about reinventing government with the emphasis
on steering as opposed to rowing; empowering communities rather
than only delivery of services; encouraging competition rather than
monopolies, public services driven by their missions rather than rules;
concentrating on earning, not just spending; decentralizing
authority, and solving problems by leveraging the market-place,
rather than simply creating public programs (Gaebler, 1992;
Ndumbaro,2006) .
Public sector organizations must seek the achievement of internal
service quality, desired level of staff satisfaction, loyalty, retention,
productivity, increased creativity and innovativeness in service
delivery, to achieve the outcome of satisfied and loyal citizenry
positively contributing to national growth and development. This is
because when public service organizations work effectively in a
country, then the country is better placed to be a competitive
global player and attract more investment and trade opportunities.
This implies more income generating activities, employment and
revenue. The increased interactions and the cross- fertilization of
ideas between a robust private sector and the public sector may
also lead to better system of governance, reduced corruption,
increased transparency, and countries becoming attractive for
industry and international capital.
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It is for achieving this close linkage between systems of governance
and national wealth and well being, that the African Public Service
Charter was created and adopted. The Charter recognizes that
Africa has to make headways in how the public sector is managed
so that we can achieve well functioning state institutions that enable
national and international efforts and resources, to be productive
and competitive within our continent and contribute to the well
being of Africans.
4. HOW DOES THE PUBLIC SERVICE CHARTER GUIDE PROFESSIONALISM
IN HUMAN RESOURCE MANAGEMENT?
The public service charter categorically stipulates that quality,
effectiveness and efficiency are key in defining the public service.
The emphasis is on high quality, efficient, and effective services
provided through optimal use of available resources. It is succinctly
stated that the objective, among others is to “Ensure quality and innovative
service delivery that meets the requirements of all.” Recognizing that the pre-
conditions for achieving that noble objective are the systems,
processes and procedures adopted, the Charter seeks to “Encourage
the efforts of Member States in modernising administration and strengthening capacity for the
improvement of public service.” This objective obliges public services to make
adjustments on the existing systems, processes and procedures, in
response to changing circumstances, and to be informed by best
practices. There are also other closely related objectives the Charter
seeks to achieve “Promote the moral values inherent in the activities of Public Service
Agents with a view to ensuring transparent service delivery.” Stating a pivotal
precondition for effective service delivery; and ensuring that the
principle of rights and duty are observed, this objective is also
included: “Improve the working conditions of Public Service Agents and ensure the
protection of their rights.” The Charter also stipulates the following objectives
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of direct relevance to human resources management: “Encourage
citizens and users of Public services to actively and effectively participate in public
administration processes” and “Promote equality between men and women as well as equality
within Public Service and Administration structures.”
Given the level of acceptable prominence to Human Resource
Management, the Charter provides guidelines in its different Articles
on the human resource management strategies. Particularly, it
focuses on the relations between the public service and public
service employees. Professionalism on the part of the public service
employees is underscored and is linked to capacity to deliver.
Creation of that capacity is examined in terms of skills, abilities and
availability of tools and equipment. Other important considerations
by the Charter include:
• Ethical conduct
• Non-discrimination of public service employees according to
differences in gender, race, etc.
• creating working environment that guarantees safety
• The rights to leave, social security and retirement benefits;
• Recruitment based on the principle of merit, equality and non-
discrimination.
• Right, within a coherent and harmonized pay system, to a just
and equitable remuneration corresponding also to
performance.
• Presence of performance culture.
• Conducive working environment for the application of new
knowledge within the limits of available resources
• Mobility in the public service
• Public service continuity
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The fundamental difference between a business model like the
Service-Profit Chain and this public service framework of the African
Charter of the Public Service, is manifested in the importance with
which public service is attached to ethical behavior and conduct.
This dimension of the public service is accorded the same level of
importance as other service delivery objectives of effectiveness and
efficiency in service delivery.
Accepted and tried logic and our own guiding frameworks as the
Charter for the Public Service in Africa, as we have seen,
encourages professionalism in the public service, and management
of the human resources. Since independence, there have been
sustained efforts in our countries to improve public service delivery
standards, and to increase reach and accessibility of public services.
In Tanzania, the efforts have produced largely incremental changes,
though in the early years there were radical and revolutionary
responses to the challenges of the day and answering of the
demands from the social political directions chosen.
5. PROFESSIONALISM IN HUMAN RESOURCE MANAGEMENT IN THE
TANZANIA PUBLIC SERVICE
Upon independence in 1961, Tanzania inherited a devolved local
government administration system with representation of directly
elected members at all levels. The devolved system was abolished in
1972 and replaced by a decentralized system of administration in
the form of de-concentration. Elected representatives at lower levels
of government were replaced by bureaucrats and ruling party
officials. At regional administration level, a strong regional level
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bureaucracy was formed to implement centralized planning and
resource control. In 1984, the local government authorities were re-
established and classical principles of local government were re-
introduced. From the mid-1980s the country underwent structural
adjustment measures and changes in political orientation towards
political pluralism. Other shifts in policies followed, including
liberalization of the economy and the present day public sector
reforms. The Public Sector reforms are the incremental reforms
focusing more on effectiveness whilst upholding the efficiency
objectives. The Civil Service Reform Program (CSRP, 1991-1999) was a
transition or the stage setting reform providing the framework for
change to align the administrative systems of government to the
new and emerging political and economic realities
1
. The CSRP was
succeeded by Public Service Reform Program now on its second
phase
2
. The goal of PSRP II is to assist MDAs deliver improved services
(in terms of quality, timeliness and efficiency), implement relevant,
priority policies, and establish a predictable and well regulated
environment for private sector growth and social development, with
an overriding theme of ‘’Enhancing Performance Results and
Accountability’’.
The PSRP is a practical instrument for implementing the Public Service
Charter. The following diagram of expected outcomes of the PSRP,
evidences the relevance of the PSRP not only to the Public Service
1 The first phase of Civil Service Reform Programme, involving downsizing of the civil
service and bringing the wage bill under control, began in 1993 and ended in 1999. This
resulted in contracted and streamlined Government structures. This process involved a
re-definition of Government roles and functions by identifying non-core functions for
hive-off, divesture or decentralization to local government or executive agencies. It also
entailed streamlining structures resulting in reduction of ministries,
2 PSRP I was implemented from 2000 to 2007; PSRP II is being implemented from 2008
to2012.
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Charter but also to the Service - Profit chain model, albeit with
changes in the profit end objectives to citizens’ satisfaction and
government’s legitimacy.
SYSTEMS AND STRUCTURES ARE IN PLACE TO ENHANCE ACCESS AND THE EFFICIENCY OF
SERVICE DELIVERY
ABILITY OF GOVERNMENT TO RECRUIT AND RETAIN A HIGH LEVEL OF COMPETENCE AND TALENT
OPTIMAL AND ADEQUATE STAFFING LEVELS TO EFFECTIVELY SUPPORT SERVICE DELIVERY
RECRUITMENT PROCESSES RESULT IN THE SELECTION OF THE BEST AVAILABLE CANDIDATES
Internal service quality
RECRUITMENT, APPOINTMENT, APPRAISALS, AND PROMOTIONS BASED ON MERIT
PUBLIC SERVANTS HAVE A SMOOTH TRANSITION TO RETIREMENT
MDAS BETTER MOTIVATE THEIR STAFF
TRAINING INTERVENTIONS RESULT IN IMPROVED KNOWLEDGE, SKILLS, AND JOB PERFORMANCE
EFFECTIVE AND EFFICIENT USE OF WAGE BILL RESOURCES
HIV- AIDS INFECTION RATES REDUCED IN THE PUBLIC SERVICE
WELFARE OF PUBLIC SERVANTS WITH HIV IMPROVED AND TREATED WITH DIGNITY AND FAIRNESS
TRAINING INTERVENTIONS RESULT IN IMPROVED KNOWLEDGE, SKILLS, AND JOB PERFORMANCE
PUBLIC SERVICE COMPOSITION REFLECTS THE DIVERSE CHARACTER OF THE NATION
Employee satisfaction –productivity and retention
EFFICIENT AND EFFECTIVE USE OF HUMAN RESOURCES
REDUCED BUREAUCRACY AND RED TAPE IN THE DELIVERY OF SERVICES
A MOTIVATED, DISCIPLINED AND ETHICAL PUBLIC SERVICE
MORE EFFICIENT DELIVERY OF INTERNAL ADMINISTRATIVE AND OPERATIONAL SERVICES
IMPROVED MANAGEMENT OF INFORMATION THAT SUPPORTS SERVICE DELIVERY
CITIZENS’
SATISFACTION
AND
LOYALTY,
GOVERNMENT
LEGITIMACY AND
ECONOMIC
GROWTH
T
H
E
P
S
R
P
O
U
T
C
O
M
E
S
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Service value-innovation, creativity
As can be observed, the efforts to professionalize Human Resource
Management in the public service are linked to service delivery goals of
the public service. It is appropriately encompassing, as systems and
processes are integral to the modernization initiatives. To achieve the
desired outcomes, different tools, processes, systems and policies have
been developed and are used in the public service but at different levels
of success. The HR management support systems, tools and instruments
include the following
3
:
SYSTEM, TOOL,
INSTRUMENT:
MAIN ELEMENTS:
The Performance Management Model
- Medium Term Strategic
Planning and Budgeting
(MTSPB) Manual
- Service Delivery Survey
Guide
• Undertake Service Delivery Surveys (SDSs), and Self
Assessment (SAs)
• Prepare three year Strategic Plans (SPs),
• 3 year- Operational plans (OPs) and Annual plans
(APs).
• Transform OPs into a Medium Term Expenditure
Framework (MTEF)
• Develop Client Service Charters (CSCs)
• Open Performance Review and Appraisal System
(OPRAS)
Complaints and Grievance Handling
Systems
- Guideline for Complaints and
Grievance Handling Systems
- Guidelines for Developing and
Implementing Client Service
Charter;
- Client Service Charter of an
MDA
• One staff member responsible for complaints handling
• Creating Customer Care Teams
• Customer care training
• Improved business processes
Integrity/Ethics Committee
- Ethics Compliance
Framework;
- Code of Ethics for the Public
service;
- Explanatory Manual for Code
of Ethics: Doing the Right
Thing
• Regular meetings of Ethics Committees
• Awareness raising on ethical conduct
• Ethics investigation
• Evidences of disciplinary action
3
Source include the Management Standard Checklist and relevant policies, regulations, circulars and guidelines
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Human Resource Plans
- HR Planning Manual
- Relevant Schemes of Service
- Job lists
- Strategic Plans
- Training Plans
- Guideline for Restructuring of
Ministries, Independent
Departments and Executive
Agencies
• Three year HR plans reviewed every year
• HR plans to forecast on quantity and quality of staff
requirements
• HR plan linkage to the Strategic Planning process
• Job lists prepared and revised to inform on HR needs
• Build staff capacities to develop and implement HR
plans
• Show evidence for decisions made on HR plans
• Undertake personnel emolument budgeting
Succession Plans
- Succession planning guide
- Relevant Schemes of Service
- Organizational structure
• Succession Plans in place
• Regularly update seniority list
• Succession plan must guide decisions on HR such as
promotion, capacity building, etc
• Build staff capacities to develop and implement
succession plans
• Monitoring implementation of the plans and reporting
Medium Term Training and
Development Plans
- Training Needs Assessment
Tools
- Training Needs Assessment
report
- Human Resources
Development/Training Plans
- Strategic Plan
• Conduct organization wide TNA every three years
• Undertake TNA whenever there is change of structure,
organizational focus, perceived need to solve
problems through training
• Use TNA results to develop and review three years
annual training plan
• Have a three year Medium Term Training and
Development plan in place
• Annual plans extracted for implementation
• Training plans must be linked to employee
performance appraisal results, Plans must be linked to
the Medium Term Strategic Plans (MTSP)
• Capacity building for developing and implementing
training plans
• Monitor implementation of the training plans and
reporting
Open Performance Review and
Appraisal (OPRAS)
-OPRAS guidelines
• Conduct annual assessment of all employees’
performance using OPRAS
• Link Individual Performance Agreements linked to
Strategic, Action/Business plans and MTEF
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• Conduct midyear and annual appraisal meetings
timely
• Keep record of all dully completed OPRAS forms
• Produce annual OPRAS report showing summary of
assessment rates and performance trends
• Have Training linked to performance assessment
Personnel Records Management
- Human Capital Management
System
- Record and Archives
Management Policy
- Records & Archives Management
Act. No. 3 of 2002
- Records & Archives Management
Regulations
- Registry Procedures Manual
- Desk Instruction for Registry Staff
and Records Users
- Records Retention/Disposal
Schedules
• Adequate personnel: Records Management
Assistants, Officers, Coordinators and Managers are
in place and capable of managing Personnel Records
• Adequate space and facilities available for storing
paper and electronic records
• Show evidence of complete personnel records being
retrieved timely and accurately
• Show evidence that Personnel records are transferred
with an employee
• Show evidence of timely disposal of Personnel records
• Monitoring and evaluating the implementation of the
system and reporting
HIV/AIDS Workplace Interventions
- HIV/AIDS Policy
- Guidelines for Managing Diversity
in the Public Service
- Guidelines for Managing People
With Disabilities in the Public
service
- National HIV/AIDS Policy
- Guideline for Management of
HIV/AIDS in the Public service
- Circular No. 2 of 2006 on
Support, Caring and Treatment of
HIV/AIDS Infected Public
Servants.
• Workplace interventions must be present
• Create work place Technical Aids Committee
• Have knowledgeable staff capable of designing and
implementing HIV/AIDS interventions
• Conduct situation analysis after every three years
• Develop a three year HIV/AIDS plan and strategy
• Annually budget for HIV/AIDS workplace interventions
• Treatment arranged for staff living with HIV/AIDS
• Provide evidence for reduction of attrition and infection
rate
• Provide evidence for reduction of time absent from
work as a result of treatment for diseases caused by
HIV/AIDS.
• Monitor implementation of the system and reporting
Restructuring for Human Resource
Management (HRM) issues
• Skilled and knowledgeable staff to manage HRM
issues in DAHRMs’ offices Strengthen DAHRM offices:
create superlative post responsible for HR
• Retool DAHRM’s offices to facilitate HR management
issues
• Appoint and operate required Ad-hoc Committees to
manage HR issues (for promotion, confirmation, etc).
• Monitoring implementation of the system and reporting
Labor relation structures and guides • Mechanism for the participation of public servants in
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-The Public Service Negotiation
Machinery Act 2003
negotiating and rendering advice to the government
and settling disputes:
• Service Joint Council for the Civil service, Teachers,
Local Govt, health, Fire & Rescue Services &
immigration service
• Purpose: To advise on welfare, to discuss & make
recommendation on interest, well being and efficiency,
to negotiate on matters of terms and conditions, to
discuss matters referred to it by the Public Service
Joint Council
• Public Service Joint Staff Council – is the highest
participatory negotiating and consultative body in the
public service
• Master Workers Council: to advice government on
procedures in respect of promotion and disciplinary
measures, advice to measures for effective delivery of
services, advice on changes to existing regulations
and conditions of work
• Each institution is required to establish a Workers
Council.
• Rights and conditions to strike & lock outs
Good practice in recruitment and staff
selection
- Public Service Recruitment Code
of Good Practice (one of the
instruments guiding management
of human resources it outlines
what is required by the public
service Act)
• Adhering to recruitment principles geared to
maintaining a public service which is competent,
ethical, motivated, a political, of high standard of
integrity by:
• Finding the best available person for the job through
selection on merit,
• Putting all appointments above suspicion of patronage
• Considering women with relevant qualifications and
appoint in strategic positions (women in decision
making position now make about 30.2% of total
positions)
• Ensuring recruitment and appointment procedures
reinforce the political impartiality of the public service
The overarching guiding frameworks providing legitimacy to the different
HR initiatives are the following: Public Service Management and
Employment Policy (2008), Public Service Act No 8 of 2002 and the
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Public Service Regulations of (2003). In 2008, there have been
amendments to the Public Service Act to create new bodies and to
redefine roles of existing bodies: a recruitment secretariat was created;
and Public Service Commission Role was redefined as an oversight body.
The performance appraisal system (OPRAS) received legal backing and
became a legal obligation.
These amendments were prompted by the desire to overcome present
challenges. These challenges include (i) the decentralization of
recruitment leading to unwarranted outcomes of increased recruitment
costs, inability to control happenings of nepotism and favoritism, and
poor information keeping on needs, availability of skills, challenges and
opportunities; (ii) the conflicting role of the Public Service Commission as
both an oversight institution and involvement in recruitment; and (iii)
Less than desired performance in respect to the Open Performance
Review and Appraisal process (about 50% of public organizations are
implementing OPRAS in some manner). Below is a brief description of the
role and responsibilities of the different important actors in the public
service.
ACTOR ROLE AND RESPONSIBILITY
President’s Office, Public
Service Management:
Developing and reviewing policies, management systems, tools
and standards; building capacity to understand, use and comply;
regular assessment to monitor compliance and use; providing
incentives for adoption and use
Role of Public Service
organizations
Creating internal capacity to understand, use and comply to the
policies, systems, tools and standards; Customize some of the
tools to fit specific organizational needs and environment; Commit
resources, both Human and Financial for effective use and
monitoring of implementation; monitor and report on use and
compliance; implement internal rewarding and sanctioning based
on use and compliance and results thereof.
Role of Public Service
Commission (PSC)
Conduct regular assessment to monitor compliance to policies,
legislations and use of tools and guidelines; monitor and evaluate
performance and implementation; take appropriate measures on
cases of non compliance in the performance and implementation
of the management standards; receive appeals from public
servants on matters of discipline.
Public Service Training
Institutions
These are the public service college, Local Government Training
Institute, Tanzania Global Development Learning Centre and the
Leadership Institute, whose roles include training and capacity
building through: induction training, public service examinations,
leadership development programs and providing support in the
development, adaptation and implementation of systems and
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procedures.
Public service college is responsible for induction training and
public service examinations (this includes Human Resource
Management proficiency examination - a precondition for HR
officers promotion after first appointment)
Recruitment Secretariat Provides centralized expert recruitment services to public service
organizations for new entrants and chief executives of Executive
Agencies
It is obvious from the foregoing that the Public Service of Tanzania has
developed a very elaborate framework for effective human resource
management. These are a result of a well formulated and implemented
Public Service Reform Program, though there remain challenges affecting
more effective implementation and expected outcomes. The HR
management framework created and continuously improved, supports
the realization of the goals of efficient delivery of effective public services
which is an overriding objective of the African Charter of Public Services
and also a necessary condition to achieving the national socio-economic
goals and the National Development Vision 2025 – Tanzania to become a
middle income country.
6. CHALLENGES FACING HUMAN RESOURCE MANAGERS PROMOTING
PROFESSIONALISM AND IMPLEMENTING THE PUBLIC SERVICE
CHARTER
Rapid expansion of services and employment
Recently there has been a concerted effort to increase accessibility
to the public of health and education facilities. The quest to achieve
the Millennium Development Goals is possibly a contributor to the
expansion where in every ward there should be a secondary school
and the efforts to achieve universal primary education and every
village a dispensary (Tanzania has now achieved 97% primary school
enrolment rate). Between 2005 and 2010, permission for recruitment
was given to 146,000 positions and in 2010/11, 49,593 recruitments
are to be made mostly to serve the health and teaching services.
This coupled with limited and decreasing financial resources seem to
start affecting recruitment of new staff of other cadres and at the
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same time limit resources to improve public staff remuneration. The
remedy in this case, other than controlled expansion of services, is
increasing revenue so that capacity is there to meet the increasing
wage bill.
Egalitarian perspective on pay
Given the historical background of socialist orientation, huge
disparities in pay within the public service tend to be unacceptable
or politically unpalatable. It is not surprising then, that despite the
deliberate intentions through of policies, to increase pay and to
achieve pay levels comparable to the private sector. This noble
intention will take time to be realized, as any increases at both
higher and lower pay levels are often minimal, while differences in
absolute amounts between higher and lower pay levels are
relatively large.
4
The public service generally pays better than the
private sector at the minimum wage level, but comparably less for
senior positions. There are plans to introduce a senior service scheme
(SES) to allow linkage between senior staff performance and pay
where the objectives to be pursued are measurable and in addition
to other incentives increased financial rewards may be provided.
Linking pay to performance
The goal of linking pay to performance is not easily attainable,
especially where the amounts available for remuneration is affected
by resource constraints and or the presence of socio-political caps
on what can be offered. The OPRAS system can work well and serve
as a catalyst for attitudinal and cultural change when there are
appropriate incentives. Linking pay to performance may be the
incentive needed. Measurable objectives, prioritization, the 20% of
efforts resulting to 80% results rule and review of goals can mitigate
budgetary constraints on performance which is often cited as
limiting OPRAS. It is my opinion, that particularly determined efforts to
make the OPRAS system work more effectively, is likely to lead to the
4
Minimum wage was increased by 107.7% from 2005/06 and 2010/11. Salary increased on average during the
period by 113%
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most positive results from the Public Sector Reform Program and
public service delivery in general.
Leadership capacity
In a recent study on leadership competency and quality in the
public service linked to the leadership competency framework and
the development of leadership programs, it was observed that an
acceptable level of competency is present within the public service.
However, the level of leadership quality desired has not been
achieved as a result of some debilitating weaknesses affecting
leadership effectiveness. These, if worked upon, can greatly
enhance leadership capacity in the public service. Such inhibiting
factors include the following: inability to hold subordinates
accountable for meeting targets; failure to create a shared vision;
insufficient attention to client needs and customer care; tendency to
micro manage, inadequate delegation and encouragement of
subordinates, inadequate collaborative skills. It is apparent that with
a system in place, effectively functioning, to hold the superiors
accountable for the results of their actions, superiors may equally
demand result from subordinates. As a result there are three linked
developments taking place: (i) creation of a Senior Executive
Service, (ii) management accountability framework which will
support the SES system, and (iii) leadership development programs
which are now being developed so that in a more systematic
manner leadership capacity is continuously built. A new leadership
institute has been created in late 2010 for the purpose.
Dependence on external finances for the reform program
The public service reform program is dependent on external
resources. This dependence has been affecting the reform agenda
in numerous ways. In the first instance it has led to one conduit for
the reform resources. The conduit is setting the agenda and dishing
out resources, albeit somewhat involving the other party in agenda
decisions. For this reason, ownership of the reform agenda by the
resource recipient party has been cited as a problem affecting
reform performance. To counteract the problem the recipient
parties were later arranged to decide on which of the agendas they
21
wish to implement and for what amount of resources, given a
ceiling. Since this new approach was launched, we have been
patiently waiting to see a change in attitude to the reform.
Secondly, the reform program is being implemented in phases, and
within a phase of four years numerous interventions were to be
introduced. Very new ideas like the OPRAS system was to be
introduced almost simultaneously with strategic plans, clients service
charters, medium term expenditure frameworks etc. The capacity to
adopt and adapt the modernization agenda to suit country
circumstances and to be implemented effectively is unlikely to be
adequately there when the country was also liberalizing its economy
and becoming a pluralist democracy. The achievements of the
reform program, which are quite vast under the circumstances, must
be considered remarkable. Thirdly, as the saying goes ‘the one who
pays the piper decides on the tune.’ There have been instances
where calls for a change in direction, resulting from the influence of
those who provide resources affecting reform momentum. It is
important to depend more on own resources than is the case now,
so as to end the doubt regarding whether one can reform on
borrowed funds.
Human Resources Management not yet a strategic function
It obvious that the President’s Office, Public Service Management
having the mandate on human resources management policies, will
be primarily engaging itself with HR matters. A lower level of
attention to HR issues is expected in other public institutions,
especially when a robust framework is absent to ensure desired
involvement of senior organizational leaders in HR. There are positive
efforts already taking place, which includes the restructuring of the
offices of the directorate responsible for administration and human
resources through the creation of a superlative position responsible
for human resources management to be supported by HR
specialists. It might be appropriate to also provide on a permanent
basis, a management level committee which can meet regularly on
a quarterly basis, to deliberate on HR issues. In this manner, the chief
22
executives will have to dwell and lead on HR, just as they do on the
sectoral issues they are responsible for. This arrangement is present in
some public service organizations and may need to be uniformly
established in the public service.
Cultural dimension
There is a challenge with the fact that we continue to propagate
African values and uphold them when they contribute to
contemporary institutional and national priorities, but at the same
time reduce the strength of the values which affect the intentions to
modernize, and be more effective and efficient. In the recent Africa
Capacity Building Foundation Summit in Kigali Rwanda (February 8 –
9,2011), it was reiterated by the present African leaders that Africa
has to use its capacity in our heads more than the capacity in our
hearts and increase the level of passion and commitment to
performance. For the very robust frameworks adopted for
professionalizing HR and implementing public service Charter to work
effectively, the cultural dimension has to be addressed so that our
values contribute to enhanced public service delivery and national
development. Kavura (2006) assessed the OPRAS system and
concluded that critically, the cultural dimension has to be given
more attention for the approach to succeed. It was suggested that
the African cultural values of ‘familism’, ‘collectivism,’ ’god
fatherism’ and ‘respect for age’ contradict the principles enshrined
in OPRAS related to openness, low power distance, and
participatory evaluation, etc. Some East Asian countries, not
ascribing to the western cultural values of individualism, ascribe to
collectivism have shown to adopt New Public Management
Practices and are keen on making them successful. We have to
learn from them and directly deal with cultural impediments to
modernization – it is necessary to find the magic wand.
23
7. CONCLUSIONS
The public service of Tanzania has a relatively robust HR framework.
The different elements of HRM and the supporting architecture have
been well developed. The public service reform programs are the
incubators and vehicles through which the initiatives to improve
service delivery, utilizing a facilitating human resource management
practice, are disseminated across the public service. Different
systems, tools and process have so far been developed and are
implemented but at varying degrees of reach and success.
The Public Service Charter is a welcomed development; it buttresses
and gives a new impetus to the importance attached to quality and
effective service delivery achieved through requisite best practices
in organizational management and human resource management.
It is much clearer now, that headways to professionalize HRM will be
made by adopting best practices in people management, whilst
emphasizing integrity and ethical conduct.
The Africa Public Sector Human Resource Managers Network (APS-
HRMnet) provides a new supportive structure and forum for the
sharing of best practices. The idea to create a discourse on the
African Charter of Public Services seems to accomplish two pronged
objectives: to disseminate the Charter and provide room for
internalization of the different elements emphasized in it, and at the
same time, to gauge our experiences against the best HRM
practices highlighted in the Charter in order to make the necessary
efforts and adjustments.
The Tanzania Public Service faces some challenges in its quest to
effectively implement human resource management through a
more coherent approach, despite the robust frameworks that were
24
created. Two significant issues need more in-depth attention, and
these are, the performance evaluation both at individual and
organizational level and the pay dimension. There are some
remedies on the drawing board, though whatever is to be achieved
may be limited due to financial resources constraints and the
multiple objectives facing our still young nation.
REFERENCES
Anthony, W. P., Perrewe, P.L. and Kacmar, K.M (1996) Strategic
Human Resource Management, Fort Worth, Texas, The Dryden Press
Bana, B. (2006) Personnel Management and Human Resource
Management : A Real Debate or Academic/Consultant Gimmicks, A
Paper Presented at the Association of Tanzanian Administrators (ATA)
Conference on the Challenges Facing Public Administration,
Bagamoyo, Tanzania
Bana, B. and Ngware, S.A. (2005) Reforming the Public Service: The
Tanzanian Experience. In Public Service Reform Eastern and South
African – Issues and Challenges, eds. G. Mutahaba and K. Kiragu.
Mkuki na Nyota Publishers, Dar es Salaam
Beaumont, P. (1992) The US Human Resource Management
Literature: a Review, in G. Salaman (ed.), Human Resource
Strategies, London, Sage Publications.
Beer, M. and Ruh, R.A (1976): ‘’Employee growth through
Performance Management,” Harvard Business Review, July-August,
pp 59-66
Halfani, M. (1998) Grappling with the Dynamics of Change
Management the Case of Civil Service Reform in Tanzania. A Paper
Presented at the National Symposium of Civil Service Reform in
25
Tanzania, Organized by the United Consultancy Bureau, University of
Dar es Salaam, 15th 16th January,1998.
Heskett James L. and Schlesinger L. (1994), Service Profit Chain – How
Leading Companies Link Profit and Growth to Loyalty, Satisfaction
and Value,
Kavura R. (2006) The Tanzania Management Culture and Appraising
Employees under OPRAS A Paper Presented at the Association of
Tanzanian Administrators (ATA) Conference on the Challenges
Facing Public Administration, Bagamoyo, Tanzania.
Rugumyamheto, J.; Kiragu, K.; Mazikana, P. (2006) Stakeholders
Perspective and Imperatives in the Formulation of PSRP II Strategy.
Schuler, R.S. and Huber, V.L. (1993) Personnel and Human Resource
Management, 5th edition, St Paul, Minnesota, West Publishing
Company
Storey, J. (1992) Management of Human Resources, Oxford:
Blackwell.
Torington, D. Hall and Taylor, S. (2002) Human Resource
Management, Essex Pearson Educational Limited
URT (2002) Public Service Act, No. 8 of 2002, Dar es Salaam
URT (2003) Public Service Reform Program Phase I, Revised Medium
Term Strategy, action Plan and Budget 2003/4-2005/6, President’s
Office Public Service Management, Dar es Salaam
URT (2003)The Public Service Negotiation Machinery, Dar es Salaam
URT (2004) State of Public Service Report President’s Office Public
Service Management, Dar es Salaam,
26
URT (2007) Public Service (Amendment) Act, 2007, Dar es Salaam
URT (2007) Public Service Reform Program Phase II, Medium Term
Strategy Volume I, 2008-2012, President’s Office Public Service
Management, Dar es Salaam
URT (2008) Public Service Management and Employment Policy, Dar
es Salaam: President’s Office-Public Service Management, Dar es
Salaam
URT (2011) Management Standards Checklist, Dar es Salaam
World Bank (2008) Implementation Completion and Results, Report
for a Public Service Reform Project (IDA-33000 IDA 3300A, Dar es
Salaam.
doc_168326162.pdf
Professionalism can be looked at as a multidimensional concept. Where by the manner in which a discipline has evolved, how it is organized, managed, implemented and the parameters set, etc., make it a distinct clearly identifiable approach to societal or material problem.
1
SESSION 6
DISCUSSION PAPER 2
Workshop on "Promoting Professionalism in the Public Service: Strengthening the Role of
Human Resource Managers in the Public Sector for the Implementation of the Africa
Public Service Charter"
14 to 18 March 2011 in Addis Ababa, Ethiopia
PUBLIC SECTOR HUMAN RESOURCE MANAGERS PROMOTING
PROFESSIONALISM AND IMPLEMENTING THE PUBLIC SERVICE CHARTER
AT THE NATIONAL LEVEL: FACILITATING AND INHIBITING FACTORS AND
STRATEGIC ACTIONS
By
Dr. Faisal Issa, Director: Public Service Management, Office of the
President, Republic of Tanzania
2
PUBLIC SECTOR HUMAN RESOURCE MANAGERS PROMOTING
PROFESSIONALISM AND IMPLEMENTING THE PUBLIC SERVICE CHARTER
AT THE NATIONAL LEVEL: FACILITATING AND INHIBITING FACTORS AND
STRATEGIC ACTIONS
1. WHAT IS HUMAN RESOURCE MANAGEMENT?
African countries operate in a dynamic global environment and
often, as changes happen elsewhere, developing countries move in
stride to adopt, adapt to and accommodate the new
developments. The 1990s was when the new concept of Human
Resource Management was introduced in Africa. Personnel
management departments and units were changed into human
resource functionary units, but mostly without any significant
changes in people management practices. The mainstream
literature propounds that human resource management is a result of
the evolution of Personnel Management. In response to the changes
in the management and business environment, human resources
management had to assume a strategic role rather than an
administrative or operational role associated with the more
traditional approach(Beaumont,1992;Schuler and Huber, 1993).
The literature on Human Resource Management identifies four
characteristics which distinguish Human Resource Management,
giving it an ‘architect’ role, from traditional personnel management:
integration of human resource policies and practices with
organizational strategies, a holistic; coordinated approach to
policies and practices for managing people at work; a primary focus
on the individual employee as opposed to the collective relations
within the organizations; strong organizational value and culture
3
emphasizing a sustainable match between the values of employees
and the organization, whereby key elements of HR add value to the
organization and returns on investment is simultaneously achieved
(Storey, J. 1992).
Other important features of Human Resource Management
designed to increase employee commitment and motivation
towards organizational goals while meeting the personnel needs of
employees include the following: greater employee participation in
work organization and management, and the strengthening of the
role of line managers through approaches such as quality circles;
increased internal public relations through corporate videos; joint
consultation committees, with membership open to all employees
regardless of union membership; employee share-ownership
schemes; and performance appraisals to determine training,
development and performance feedback. Individualized pay:
determined by performance, competencies and market factors,
rather than cost of living or collectively negotiated increases; and
single status employment conditions and benefits removing the
distinction between ‘manual’ and ‘staff’ employees (Anthony,
Perrewe and Kacmar, 1996).
2. WHAT IS THE ROLE OF HUMAN RESOURCE MANAGERS?
Previously, complexity was associated with business organizations
operating in competitive environments. The emergence of the New
Public Management Model has changed the landscape, and public
sector organizations face comparable levels of complexity. There is
more demand for quality and reliable services from the public and
there is more competition for financial and human resources. Public
4
institutions have to legitimize their existence, necessitating the
adoption of complex outcome-focused systems and procedures.
NPM model is a result of the quest for minimal government, it is about
reinventing government through an emphasis on steering, as
opposed to rowing; empowering communities rather than only
delivering services; encouraging competition rather than
monopolies; enabling public services to be driven by their missions
rather than rules; concentrating on earning, not just spending;
decentralizing authority, and solving problems by leveraging the
market-place, rather than simply creating public programs (Gaebler,
1992; Ndumbaro,2006) .
When Human Resource Management takes a strategic approach to
organizational issues, Human Resource Management views all
managers as human resource managers. HRM issues are not simply
the province of the human resource unit. Rather, all managers must
take responsibility for the efficient and effective utilization of their
employees. By the same token, human resource managers view their
role as essentially supportive of the operating line managers. That is,
they should see their role as advising, helping, and providing expert
guidance to line managers on human resources issues (Anthony,
Perrewe and Kacmar, 1996).
HRM is seen to support organizational business strategies through
internally consistent practices and policies and expected to
contribute to the following goals: productivity or service quality
enhancement through increased contributions of individuals and
teams; statutory compliance; gaining competitive advantage
through employee participation; workforce flexibility and
empowerment; and developing a supportive organizational culture
through organizational development (Schuler and MacMillan, 1984;
Schuler, 1992).
5
In human resource management, HRM strategies - human resource
planning, recruitment and selection, performance management,
reward management, human resource development, labour
relations– are translated into policies and actions which are to be
implemented by HR specialist and generalist supporting the line
managers, who now have HR responsibilities in addition to their
functional work of finance, engineering, etc.
3. WHAT IS PROFESSIONALISM IN HUMAN RESOURCES MANAGEMENT?
Professionalism can be looked at as a multidimensional concept.
Where by the manner in which a discipline has evolved, how it is
organized, managed, implemented and the parameters set, etc.,
make it a distinct clearly identifiable approach to societal or
material problem. The Oxford Dictionary of English (2003) describes
professionalism as both the competence and skills expected of a
professional and the practice of an activity, by professionals rather
than amateur players. There are debates as to whether Human
Resource Management deserves to be considered a profession. This
is because either people with ,minimal training on the discipline are
given responsibility for the function of our organizations, or the
absence of accreditation bodies for human resource management
professionals (such as the engineering registration board in many
countries). Nonetheless, it is argued that HRM is increasingly
6
becoming a profession, as it has evolved from traditional personnel
management to its current level, in which Senior HR officers are
expected to be functional experts, capable administrators and
business oriented internal consultants with global awareness (Schuler
and Huber, 1993).
The African Public Sector Human Resource Managers Network has
been created in recognition of the need to create professionalism in
the way in which we manage human resources in the public sector.
Furthermore, its goal is also to provide a forum in which countries’
can share experiences and best practices, whilst reminding each
other that public sector efficiency and its effectiveness in achieving
desirable outcomes can only be realized if we have a motivated
and satisfied public sector employees. The Network is a pivotal
milestone to professionalism in Human Resources Management in
Africa.
Heskett James L. and Schlesinger L. (1994) in their book the “Service
Profit Chain – How Leading Companies Link Profit and Growth to
Loyalty, Satisfaction and value,” associate internal service quality
to a desired level of staff satisfaction that induces both employee
loyalty, retention and employee productivity, leading to increased
creativity and innovativeness to improving service quality, quantity
and types. The final outcome is profit and increased market share in
an increasingly competitive environment.
7
This Service Profit Chain model is relevant to public sector
organizations as the emergence of the New Public Management
Model has changed the landscape and public sector organizations
face comparable levels of complexity as the private sector. There is
more demand for quality and reliable services from the public; there
is more competition for financial and human resources and public
institutions have to legitimize their existence necessitating the
adoption of complex outcome focused systems and procedures.
NPM model is considered a result of the quest for minimal
government; it is about reinventing government with the emphasis
on steering as opposed to rowing; empowering communities rather
than only delivery of services; encouraging competition rather than
monopolies, public services driven by their missions rather than rules;
concentrating on earning, not just spending; decentralizing
authority, and solving problems by leveraging the market-place,
rather than simply creating public programs (Gaebler, 1992;
Ndumbaro,2006) .
Public sector organizations must seek the achievement of internal
service quality, desired level of staff satisfaction, loyalty, retention,
productivity, increased creativity and innovativeness in service
delivery, to achieve the outcome of satisfied and loyal citizenry
positively contributing to national growth and development. This is
because when public service organizations work effectively in a
country, then the country is better placed to be a competitive
global player and attract more investment and trade opportunities.
This implies more income generating activities, employment and
revenue. The increased interactions and the cross- fertilization of
ideas between a robust private sector and the public sector may
also lead to better system of governance, reduced corruption,
increased transparency, and countries becoming attractive for
industry and international capital.
8
It is for achieving this close linkage between systems of governance
and national wealth and well being, that the African Public Service
Charter was created and adopted. The Charter recognizes that
Africa has to make headways in how the public sector is managed
so that we can achieve well functioning state institutions that enable
national and international efforts and resources, to be productive
and competitive within our continent and contribute to the well
being of Africans.
4. HOW DOES THE PUBLIC SERVICE CHARTER GUIDE PROFESSIONALISM
IN HUMAN RESOURCE MANAGEMENT?
The public service charter categorically stipulates that quality,
effectiveness and efficiency are key in defining the public service.
The emphasis is on high quality, efficient, and effective services
provided through optimal use of available resources. It is succinctly
stated that the objective, among others is to “Ensure quality and innovative
service delivery that meets the requirements of all.” Recognizing that the pre-
conditions for achieving that noble objective are the systems,
processes and procedures adopted, the Charter seeks to “Encourage
the efforts of Member States in modernising administration and strengthening capacity for the
improvement of public service.” This objective obliges public services to make
adjustments on the existing systems, processes and procedures, in
response to changing circumstances, and to be informed by best
practices. There are also other closely related objectives the Charter
seeks to achieve “Promote the moral values inherent in the activities of Public Service
Agents with a view to ensuring transparent service delivery.” Stating a pivotal
precondition for effective service delivery; and ensuring that the
principle of rights and duty are observed, this objective is also
included: “Improve the working conditions of Public Service Agents and ensure the
protection of their rights.” The Charter also stipulates the following objectives
9
of direct relevance to human resources management: “Encourage
citizens and users of Public services to actively and effectively participate in public
administration processes” and “Promote equality between men and women as well as equality
within Public Service and Administration structures.”
Given the level of acceptable prominence to Human Resource
Management, the Charter provides guidelines in its different Articles
on the human resource management strategies. Particularly, it
focuses on the relations between the public service and public
service employees. Professionalism on the part of the public service
employees is underscored and is linked to capacity to deliver.
Creation of that capacity is examined in terms of skills, abilities and
availability of tools and equipment. Other important considerations
by the Charter include:
• Ethical conduct
• Non-discrimination of public service employees according to
differences in gender, race, etc.
• creating working environment that guarantees safety
• The rights to leave, social security and retirement benefits;
• Recruitment based on the principle of merit, equality and non-
discrimination.
• Right, within a coherent and harmonized pay system, to a just
and equitable remuneration corresponding also to
performance.
• Presence of performance culture.
• Conducive working environment for the application of new
knowledge within the limits of available resources
• Mobility in the public service
• Public service continuity
10
The fundamental difference between a business model like the
Service-Profit Chain and this public service framework of the African
Charter of the Public Service, is manifested in the importance with
which public service is attached to ethical behavior and conduct.
This dimension of the public service is accorded the same level of
importance as other service delivery objectives of effectiveness and
efficiency in service delivery.
Accepted and tried logic and our own guiding frameworks as the
Charter for the Public Service in Africa, as we have seen,
encourages professionalism in the public service, and management
of the human resources. Since independence, there have been
sustained efforts in our countries to improve public service delivery
standards, and to increase reach and accessibility of public services.
In Tanzania, the efforts have produced largely incremental changes,
though in the early years there were radical and revolutionary
responses to the challenges of the day and answering of the
demands from the social political directions chosen.
5. PROFESSIONALISM IN HUMAN RESOURCE MANAGEMENT IN THE
TANZANIA PUBLIC SERVICE
Upon independence in 1961, Tanzania inherited a devolved local
government administration system with representation of directly
elected members at all levels. The devolved system was abolished in
1972 and replaced by a decentralized system of administration in
the form of de-concentration. Elected representatives at lower levels
of government were replaced by bureaucrats and ruling party
officials. At regional administration level, a strong regional level
11
bureaucracy was formed to implement centralized planning and
resource control. In 1984, the local government authorities were re-
established and classical principles of local government were re-
introduced. From the mid-1980s the country underwent structural
adjustment measures and changes in political orientation towards
political pluralism. Other shifts in policies followed, including
liberalization of the economy and the present day public sector
reforms. The Public Sector reforms are the incremental reforms
focusing more on effectiveness whilst upholding the efficiency
objectives. The Civil Service Reform Program (CSRP, 1991-1999) was a
transition or the stage setting reform providing the framework for
change to align the administrative systems of government to the
new and emerging political and economic realities
1
. The CSRP was
succeeded by Public Service Reform Program now on its second
phase
2
. The goal of PSRP II is to assist MDAs deliver improved services
(in terms of quality, timeliness and efficiency), implement relevant,
priority policies, and establish a predictable and well regulated
environment for private sector growth and social development, with
an overriding theme of ‘’Enhancing Performance Results and
Accountability’’.
The PSRP is a practical instrument for implementing the Public Service
Charter. The following diagram of expected outcomes of the PSRP,
evidences the relevance of the PSRP not only to the Public Service
1 The first phase of Civil Service Reform Programme, involving downsizing of the civil
service and bringing the wage bill under control, began in 1993 and ended in 1999. This
resulted in contracted and streamlined Government structures. This process involved a
re-definition of Government roles and functions by identifying non-core functions for
hive-off, divesture or decentralization to local government or executive agencies. It also
entailed streamlining structures resulting in reduction of ministries,
2 PSRP I was implemented from 2000 to 2007; PSRP II is being implemented from 2008
to2012.
12
Charter but also to the Service - Profit chain model, albeit with
changes in the profit end objectives to citizens’ satisfaction and
government’s legitimacy.
SYSTEMS AND STRUCTURES ARE IN PLACE TO ENHANCE ACCESS AND THE EFFICIENCY OF
SERVICE DELIVERY
ABILITY OF GOVERNMENT TO RECRUIT AND RETAIN A HIGH LEVEL OF COMPETENCE AND TALENT
OPTIMAL AND ADEQUATE STAFFING LEVELS TO EFFECTIVELY SUPPORT SERVICE DELIVERY
RECRUITMENT PROCESSES RESULT IN THE SELECTION OF THE BEST AVAILABLE CANDIDATES
Internal service quality
RECRUITMENT, APPOINTMENT, APPRAISALS, AND PROMOTIONS BASED ON MERIT
PUBLIC SERVANTS HAVE A SMOOTH TRANSITION TO RETIREMENT
MDAS BETTER MOTIVATE THEIR STAFF
TRAINING INTERVENTIONS RESULT IN IMPROVED KNOWLEDGE, SKILLS, AND JOB PERFORMANCE
EFFECTIVE AND EFFICIENT USE OF WAGE BILL RESOURCES
HIV- AIDS INFECTION RATES REDUCED IN THE PUBLIC SERVICE
WELFARE OF PUBLIC SERVANTS WITH HIV IMPROVED AND TREATED WITH DIGNITY AND FAIRNESS
TRAINING INTERVENTIONS RESULT IN IMPROVED KNOWLEDGE, SKILLS, AND JOB PERFORMANCE
PUBLIC SERVICE COMPOSITION REFLECTS THE DIVERSE CHARACTER OF THE NATION
Employee satisfaction –productivity and retention
EFFICIENT AND EFFECTIVE USE OF HUMAN RESOURCES
REDUCED BUREAUCRACY AND RED TAPE IN THE DELIVERY OF SERVICES
A MOTIVATED, DISCIPLINED AND ETHICAL PUBLIC SERVICE
MORE EFFICIENT DELIVERY OF INTERNAL ADMINISTRATIVE AND OPERATIONAL SERVICES
IMPROVED MANAGEMENT OF INFORMATION THAT SUPPORTS SERVICE DELIVERY
CITIZENS’
SATISFACTION
AND
LOYALTY,
GOVERNMENT
LEGITIMACY AND
ECONOMIC
GROWTH
T
H
E
P
S
R
P
O
U
T
C
O
M
E
S
13
Service value-innovation, creativity
As can be observed, the efforts to professionalize Human Resource
Management in the public service are linked to service delivery goals of
the public service. It is appropriately encompassing, as systems and
processes are integral to the modernization initiatives. To achieve the
desired outcomes, different tools, processes, systems and policies have
been developed and are used in the public service but at different levels
of success. The HR management support systems, tools and instruments
include the following
3
:
SYSTEM, TOOL,
INSTRUMENT:
MAIN ELEMENTS:
The Performance Management Model
- Medium Term Strategic
Planning and Budgeting
(MTSPB) Manual
- Service Delivery Survey
Guide
• Undertake Service Delivery Surveys (SDSs), and Self
Assessment (SAs)
• Prepare three year Strategic Plans (SPs),
• 3 year- Operational plans (OPs) and Annual plans
(APs).
• Transform OPs into a Medium Term Expenditure
Framework (MTEF)
• Develop Client Service Charters (CSCs)
• Open Performance Review and Appraisal System
(OPRAS)
Complaints and Grievance Handling
Systems
- Guideline for Complaints and
Grievance Handling Systems
- Guidelines for Developing and
Implementing Client Service
Charter;
- Client Service Charter of an
MDA
• One staff member responsible for complaints handling
• Creating Customer Care Teams
• Customer care training
• Improved business processes
Integrity/Ethics Committee
- Ethics Compliance
Framework;
- Code of Ethics for the Public
service;
- Explanatory Manual for Code
of Ethics: Doing the Right
Thing
• Regular meetings of Ethics Committees
• Awareness raising on ethical conduct
• Ethics investigation
• Evidences of disciplinary action
3
Source include the Management Standard Checklist and relevant policies, regulations, circulars and guidelines
14
Human Resource Plans
- HR Planning Manual
- Relevant Schemes of Service
- Job lists
- Strategic Plans
- Training Plans
- Guideline for Restructuring of
Ministries, Independent
Departments and Executive
Agencies
• Three year HR plans reviewed every year
• HR plans to forecast on quantity and quality of staff
requirements
• HR plan linkage to the Strategic Planning process
• Job lists prepared and revised to inform on HR needs
• Build staff capacities to develop and implement HR
plans
• Show evidence for decisions made on HR plans
• Undertake personnel emolument budgeting
Succession Plans
- Succession planning guide
- Relevant Schemes of Service
- Organizational structure
• Succession Plans in place
• Regularly update seniority list
• Succession plan must guide decisions on HR such as
promotion, capacity building, etc
• Build staff capacities to develop and implement
succession plans
• Monitoring implementation of the plans and reporting
Medium Term Training and
Development Plans
- Training Needs Assessment
Tools
- Training Needs Assessment
report
- Human Resources
Development/Training Plans
- Strategic Plan
• Conduct organization wide TNA every three years
• Undertake TNA whenever there is change of structure,
organizational focus, perceived need to solve
problems through training
• Use TNA results to develop and review three years
annual training plan
• Have a three year Medium Term Training and
Development plan in place
• Annual plans extracted for implementation
• Training plans must be linked to employee
performance appraisal results, Plans must be linked to
the Medium Term Strategic Plans (MTSP)
• Capacity building for developing and implementing
training plans
• Monitor implementation of the training plans and
reporting
Open Performance Review and
Appraisal (OPRAS)
-OPRAS guidelines
• Conduct annual assessment of all employees’
performance using OPRAS
• Link Individual Performance Agreements linked to
Strategic, Action/Business plans and MTEF
15
• Conduct midyear and annual appraisal meetings
timely
• Keep record of all dully completed OPRAS forms
• Produce annual OPRAS report showing summary of
assessment rates and performance trends
• Have Training linked to performance assessment
Personnel Records Management
- Human Capital Management
System
- Record and Archives
Management Policy
- Records & Archives Management
Act. No. 3 of 2002
- Records & Archives Management
Regulations
- Registry Procedures Manual
- Desk Instruction for Registry Staff
and Records Users
- Records Retention/Disposal
Schedules
• Adequate personnel: Records Management
Assistants, Officers, Coordinators and Managers are
in place and capable of managing Personnel Records
• Adequate space and facilities available for storing
paper and electronic records
• Show evidence of complete personnel records being
retrieved timely and accurately
• Show evidence that Personnel records are transferred
with an employee
• Show evidence of timely disposal of Personnel records
• Monitoring and evaluating the implementation of the
system and reporting
HIV/AIDS Workplace Interventions
- HIV/AIDS Policy
- Guidelines for Managing Diversity
in the Public Service
- Guidelines for Managing People
With Disabilities in the Public
service
- National HIV/AIDS Policy
- Guideline for Management of
HIV/AIDS in the Public service
- Circular No. 2 of 2006 on
Support, Caring and Treatment of
HIV/AIDS Infected Public
Servants.
• Workplace interventions must be present
• Create work place Technical Aids Committee
• Have knowledgeable staff capable of designing and
implementing HIV/AIDS interventions
• Conduct situation analysis after every three years
• Develop a three year HIV/AIDS plan and strategy
• Annually budget for HIV/AIDS workplace interventions
• Treatment arranged for staff living with HIV/AIDS
• Provide evidence for reduction of attrition and infection
rate
• Provide evidence for reduction of time absent from
work as a result of treatment for diseases caused by
HIV/AIDS.
• Monitor implementation of the system and reporting
Restructuring for Human Resource
Management (HRM) issues
• Skilled and knowledgeable staff to manage HRM
issues in DAHRMs’ offices Strengthen DAHRM offices:
create superlative post responsible for HR
• Retool DAHRM’s offices to facilitate HR management
issues
• Appoint and operate required Ad-hoc Committees to
manage HR issues (for promotion, confirmation, etc).
• Monitoring implementation of the system and reporting
Labor relation structures and guides • Mechanism for the participation of public servants in
16
-The Public Service Negotiation
Machinery Act 2003
negotiating and rendering advice to the government
and settling disputes:
• Service Joint Council for the Civil service, Teachers,
Local Govt, health, Fire & Rescue Services &
immigration service
• Purpose: To advise on welfare, to discuss & make
recommendation on interest, well being and efficiency,
to negotiate on matters of terms and conditions, to
discuss matters referred to it by the Public Service
Joint Council
• Public Service Joint Staff Council – is the highest
participatory negotiating and consultative body in the
public service
• Master Workers Council: to advice government on
procedures in respect of promotion and disciplinary
measures, advice to measures for effective delivery of
services, advice on changes to existing regulations
and conditions of work
• Each institution is required to establish a Workers
Council.
• Rights and conditions to strike & lock outs
Good practice in recruitment and staff
selection
- Public Service Recruitment Code
of Good Practice (one of the
instruments guiding management
of human resources it outlines
what is required by the public
service Act)
• Adhering to recruitment principles geared to
maintaining a public service which is competent,
ethical, motivated, a political, of high standard of
integrity by:
• Finding the best available person for the job through
selection on merit,
• Putting all appointments above suspicion of patronage
• Considering women with relevant qualifications and
appoint in strategic positions (women in decision
making position now make about 30.2% of total
positions)
• Ensuring recruitment and appointment procedures
reinforce the political impartiality of the public service
The overarching guiding frameworks providing legitimacy to the different
HR initiatives are the following: Public Service Management and
Employment Policy (2008), Public Service Act No 8 of 2002 and the
17
Public Service Regulations of (2003). In 2008, there have been
amendments to the Public Service Act to create new bodies and to
redefine roles of existing bodies: a recruitment secretariat was created;
and Public Service Commission Role was redefined as an oversight body.
The performance appraisal system (OPRAS) received legal backing and
became a legal obligation.
These amendments were prompted by the desire to overcome present
challenges. These challenges include (i) the decentralization of
recruitment leading to unwarranted outcomes of increased recruitment
costs, inability to control happenings of nepotism and favoritism, and
poor information keeping on needs, availability of skills, challenges and
opportunities; (ii) the conflicting role of the Public Service Commission as
both an oversight institution and involvement in recruitment; and (iii)
Less than desired performance in respect to the Open Performance
Review and Appraisal process (about 50% of public organizations are
implementing OPRAS in some manner). Below is a brief description of the
role and responsibilities of the different important actors in the public
service.
ACTOR ROLE AND RESPONSIBILITY
President’s Office, Public
Service Management:
Developing and reviewing policies, management systems, tools
and standards; building capacity to understand, use and comply;
regular assessment to monitor compliance and use; providing
incentives for adoption and use
Role of Public Service
organizations
Creating internal capacity to understand, use and comply to the
policies, systems, tools and standards; Customize some of the
tools to fit specific organizational needs and environment; Commit
resources, both Human and Financial for effective use and
monitoring of implementation; monitor and report on use and
compliance; implement internal rewarding and sanctioning based
on use and compliance and results thereof.
Role of Public Service
Commission (PSC)
Conduct regular assessment to monitor compliance to policies,
legislations and use of tools and guidelines; monitor and evaluate
performance and implementation; take appropriate measures on
cases of non compliance in the performance and implementation
of the management standards; receive appeals from public
servants on matters of discipline.
Public Service Training
Institutions
These are the public service college, Local Government Training
Institute, Tanzania Global Development Learning Centre and the
Leadership Institute, whose roles include training and capacity
building through: induction training, public service examinations,
leadership development programs and providing support in the
development, adaptation and implementation of systems and
18
procedures.
Public service college is responsible for induction training and
public service examinations (this includes Human Resource
Management proficiency examination - a precondition for HR
officers promotion after first appointment)
Recruitment Secretariat Provides centralized expert recruitment services to public service
organizations for new entrants and chief executives of Executive
Agencies
It is obvious from the foregoing that the Public Service of Tanzania has
developed a very elaborate framework for effective human resource
management. These are a result of a well formulated and implemented
Public Service Reform Program, though there remain challenges affecting
more effective implementation and expected outcomes. The HR
management framework created and continuously improved, supports
the realization of the goals of efficient delivery of effective public services
which is an overriding objective of the African Charter of Public Services
and also a necessary condition to achieving the national socio-economic
goals and the National Development Vision 2025 – Tanzania to become a
middle income country.
6. CHALLENGES FACING HUMAN RESOURCE MANAGERS PROMOTING
PROFESSIONALISM AND IMPLEMENTING THE PUBLIC SERVICE
CHARTER
Rapid expansion of services and employment
Recently there has been a concerted effort to increase accessibility
to the public of health and education facilities. The quest to achieve
the Millennium Development Goals is possibly a contributor to the
expansion where in every ward there should be a secondary school
and the efforts to achieve universal primary education and every
village a dispensary (Tanzania has now achieved 97% primary school
enrolment rate). Between 2005 and 2010, permission for recruitment
was given to 146,000 positions and in 2010/11, 49,593 recruitments
are to be made mostly to serve the health and teaching services.
This coupled with limited and decreasing financial resources seem to
start affecting recruitment of new staff of other cadres and at the
19
same time limit resources to improve public staff remuneration. The
remedy in this case, other than controlled expansion of services, is
increasing revenue so that capacity is there to meet the increasing
wage bill.
Egalitarian perspective on pay
Given the historical background of socialist orientation, huge
disparities in pay within the public service tend to be unacceptable
or politically unpalatable. It is not surprising then, that despite the
deliberate intentions through of policies, to increase pay and to
achieve pay levels comparable to the private sector. This noble
intention will take time to be realized, as any increases at both
higher and lower pay levels are often minimal, while differences in
absolute amounts between higher and lower pay levels are
relatively large.
4
The public service generally pays better than the
private sector at the minimum wage level, but comparably less for
senior positions. There are plans to introduce a senior service scheme
(SES) to allow linkage between senior staff performance and pay
where the objectives to be pursued are measurable and in addition
to other incentives increased financial rewards may be provided.
Linking pay to performance
The goal of linking pay to performance is not easily attainable,
especially where the amounts available for remuneration is affected
by resource constraints and or the presence of socio-political caps
on what can be offered. The OPRAS system can work well and serve
as a catalyst for attitudinal and cultural change when there are
appropriate incentives. Linking pay to performance may be the
incentive needed. Measurable objectives, prioritization, the 20% of
efforts resulting to 80% results rule and review of goals can mitigate
budgetary constraints on performance which is often cited as
limiting OPRAS. It is my opinion, that particularly determined efforts to
make the OPRAS system work more effectively, is likely to lead to the
4
Minimum wage was increased by 107.7% from 2005/06 and 2010/11. Salary increased on average during the
period by 113%
20
most positive results from the Public Sector Reform Program and
public service delivery in general.
Leadership capacity
In a recent study on leadership competency and quality in the
public service linked to the leadership competency framework and
the development of leadership programs, it was observed that an
acceptable level of competency is present within the public service.
However, the level of leadership quality desired has not been
achieved as a result of some debilitating weaknesses affecting
leadership effectiveness. These, if worked upon, can greatly
enhance leadership capacity in the public service. Such inhibiting
factors include the following: inability to hold subordinates
accountable for meeting targets; failure to create a shared vision;
insufficient attention to client needs and customer care; tendency to
micro manage, inadequate delegation and encouragement of
subordinates, inadequate collaborative skills. It is apparent that with
a system in place, effectively functioning, to hold the superiors
accountable for the results of their actions, superiors may equally
demand result from subordinates. As a result there are three linked
developments taking place: (i) creation of a Senior Executive
Service, (ii) management accountability framework which will
support the SES system, and (iii) leadership development programs
which are now being developed so that in a more systematic
manner leadership capacity is continuously built. A new leadership
institute has been created in late 2010 for the purpose.
Dependence on external finances for the reform program
The public service reform program is dependent on external
resources. This dependence has been affecting the reform agenda
in numerous ways. In the first instance it has led to one conduit for
the reform resources. The conduit is setting the agenda and dishing
out resources, albeit somewhat involving the other party in agenda
decisions. For this reason, ownership of the reform agenda by the
resource recipient party has been cited as a problem affecting
reform performance. To counteract the problem the recipient
parties were later arranged to decide on which of the agendas they
21
wish to implement and for what amount of resources, given a
ceiling. Since this new approach was launched, we have been
patiently waiting to see a change in attitude to the reform.
Secondly, the reform program is being implemented in phases, and
within a phase of four years numerous interventions were to be
introduced. Very new ideas like the OPRAS system was to be
introduced almost simultaneously with strategic plans, clients service
charters, medium term expenditure frameworks etc. The capacity to
adopt and adapt the modernization agenda to suit country
circumstances and to be implemented effectively is unlikely to be
adequately there when the country was also liberalizing its economy
and becoming a pluralist democracy. The achievements of the
reform program, which are quite vast under the circumstances, must
be considered remarkable. Thirdly, as the saying goes ‘the one who
pays the piper decides on the tune.’ There have been instances
where calls for a change in direction, resulting from the influence of
those who provide resources affecting reform momentum. It is
important to depend more on own resources than is the case now,
so as to end the doubt regarding whether one can reform on
borrowed funds.
Human Resources Management not yet a strategic function
It obvious that the President’s Office, Public Service Management
having the mandate on human resources management policies, will
be primarily engaging itself with HR matters. A lower level of
attention to HR issues is expected in other public institutions,
especially when a robust framework is absent to ensure desired
involvement of senior organizational leaders in HR. There are positive
efforts already taking place, which includes the restructuring of the
offices of the directorate responsible for administration and human
resources through the creation of a superlative position responsible
for human resources management to be supported by HR
specialists. It might be appropriate to also provide on a permanent
basis, a management level committee which can meet regularly on
a quarterly basis, to deliberate on HR issues. In this manner, the chief
22
executives will have to dwell and lead on HR, just as they do on the
sectoral issues they are responsible for. This arrangement is present in
some public service organizations and may need to be uniformly
established in the public service.
Cultural dimension
There is a challenge with the fact that we continue to propagate
African values and uphold them when they contribute to
contemporary institutional and national priorities, but at the same
time reduce the strength of the values which affect the intentions to
modernize, and be more effective and efficient. In the recent Africa
Capacity Building Foundation Summit in Kigali Rwanda (February 8 –
9,2011), it was reiterated by the present African leaders that Africa
has to use its capacity in our heads more than the capacity in our
hearts and increase the level of passion and commitment to
performance. For the very robust frameworks adopted for
professionalizing HR and implementing public service Charter to work
effectively, the cultural dimension has to be addressed so that our
values contribute to enhanced public service delivery and national
development. Kavura (2006) assessed the OPRAS system and
concluded that critically, the cultural dimension has to be given
more attention for the approach to succeed. It was suggested that
the African cultural values of ‘familism’, ‘collectivism,’ ’god
fatherism’ and ‘respect for age’ contradict the principles enshrined
in OPRAS related to openness, low power distance, and
participatory evaluation, etc. Some East Asian countries, not
ascribing to the western cultural values of individualism, ascribe to
collectivism have shown to adopt New Public Management
Practices and are keen on making them successful. We have to
learn from them and directly deal with cultural impediments to
modernization – it is necessary to find the magic wand.
23
7. CONCLUSIONS
The public service of Tanzania has a relatively robust HR framework.
The different elements of HRM and the supporting architecture have
been well developed. The public service reform programs are the
incubators and vehicles through which the initiatives to improve
service delivery, utilizing a facilitating human resource management
practice, are disseminated across the public service. Different
systems, tools and process have so far been developed and are
implemented but at varying degrees of reach and success.
The Public Service Charter is a welcomed development; it buttresses
and gives a new impetus to the importance attached to quality and
effective service delivery achieved through requisite best practices
in organizational management and human resource management.
It is much clearer now, that headways to professionalize HRM will be
made by adopting best practices in people management, whilst
emphasizing integrity and ethical conduct.
The Africa Public Sector Human Resource Managers Network (APS-
HRMnet) provides a new supportive structure and forum for the
sharing of best practices. The idea to create a discourse on the
African Charter of Public Services seems to accomplish two pronged
objectives: to disseminate the Charter and provide room for
internalization of the different elements emphasized in it, and at the
same time, to gauge our experiences against the best HRM
practices highlighted in the Charter in order to make the necessary
efforts and adjustments.
The Tanzania Public Service faces some challenges in its quest to
effectively implement human resource management through a
more coherent approach, despite the robust frameworks that were
24
created. Two significant issues need more in-depth attention, and
these are, the performance evaluation both at individual and
organizational level and the pay dimension. There are some
remedies on the drawing board, though whatever is to be achieved
may be limited due to financial resources constraints and the
multiple objectives facing our still young nation.
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