Public sector reform in Sub‐Saharan Africa: what can be learnt from the civil service performance improvement programme in Ghana?

This paper focuses on public sector management reform ‘best‐practice’ case experience from Sub‐Sahara African (SSA). Given that ‘best‐practice’ is a relative concept and often debatable, the paper uses the Ghana Civil Service Performance Improvement Programme (GCSPIP) experience as rather a ‘good‐practice’ case with the view to sharing the outcome and lessons to encourage collaborative‐learning. It seeks to share the outcome and lessons learnt by the Ghana civil service reform with future public service reformers and to contribute to the literature. The paper concludes with an adaptable three‐dimensional framework. The framework argues that successful future public service reform (PSR) should consider three broad issues: first, are the ‘critical success factors’, including wholehearted political leadership commitment; wholehearted bureaucratic leadership commitment; thoughtful synergistic planning/preparation; patience for implementation and evaluation; capacity to convince; neutralise and accommodate reform‐phobias and critics; sustainable financial and technical resource availability and conscious nurturing of general public support. Second, is the need for reformers to appreciate the concerns of the public and the civil society scepticism of public ‘institutions’ and its ‘operatives’ and finally placing any reform programme in a country‐specific context, including understanding its history, culture, politics, economy, sociology, ideology and values. Copyright © 2008 John Wiley & Sons, Ltd.     

Unanswered questions in service provision for modernizing states

In ‘Innovations in the provision of public goods and services’ (Pinto, R. (1998). Public Administration and Development, 18 (4): 387–397), Pinto contributes to the ongoing policy debate on service provision in two important ways. First, he points out that service provision reform is a complex, evolutionary process that is at once political and economic. Second, he argues that public management and administration, rather than becoming obsolete, will have to become more naunced and refined as governments increasingly allow private sector and citizen participation in the delivery of services. Both these propositions could be further developed by acknowledging the ongoing redefinition of what makes services ‘public’. Governments in developing countries will successfully redefine the ‘public’ character of services only when they resolve the enduring trade-offs between efficient delivery and distributive justice, between the roles of citizen and consumer. Copyright © 1998 John Wiley & Sons, Ltd.     

Towards a professional civil service in post‐transition Romania

To what degree and under what conditions can a young democracy build a competent, politically neutral public bureaucracy? A crucial component of the transition from communist party rule to democracy is the creation of a professional civil service. Success along this dimension of state‐building generates administrative capacity: non‐elected public officials ensure the implementation of reforms initiated by political leaders. In the communist party‐led regimes of Eastern Europe, forging this new administrative class from its highly politicised predecessor took place as new democracies sought to overcome historical legacies and integrate with the European Union. A case study of administrative reform in Romania during the post‐1989 period suggests the importance of external influences in forming a civil service more closely adhering to the Weberian ideal of an expert, rules‐based bureaucracy. Through analysis of survey data from a nationally representative sample of the Romanian civil servants, the public bureaucracy has professionalised insofar as educational and training credentials rather than political affiliation are significant predictors of salary levels. Copyright © 2009 John Wiley & Sons, Ltd.     

Reforming post‐Communist bureaucracies: The effect of transitional justice

Observers of post‐Communist politics recognize that civil service reform, an important part of the institutional transformation in Eastern Europe, was initiated at a very uneven pace. Hungary and Poland adopted changes quickly after the fall of Communism, while Romania and Slovakia waited longer. How can one explain the timing of civil service reform after 1989? Previous research blames a number of factors but inconsistencies between predictions and actual outcomes warrant a more thorough investigation. What has been overlooked, we argue, are the policies of transitional justice that altered the costs and benefits for elites to keep the institutional status quo. The empirical analysis reveals that when in place, lustration by vetting of public officials reduced the likelihood of passing a civil service reform act. This effect is conditioned by the legislative strength of ex‐Communist parties, as demonstrated by results from logistic regression tests on data from 11 countries.     

Trajectories of Administrative Reform: Institutions,Timing and Choices in France and Spain

The influence of national administrative institutions on contemporary reforms has often been noted but insufficiently tested. This article enriches the comparative perspective of administrative reform policies by focusing on four interrelated dimensions: the choices of reformers, institutional constraints, timing and sequencing and long-term trajectories. This article tries to determine whether most similar administrative systems exhibit analogous contemporary reform trajectories in content, timing and sequence. By comparing the administrative reform policies of two ‘most similar’ Napoleonic countries, France and Spain, this article analyses the commonalities and divergences of decentralisation, territorial state reorganisation, civil service reforms and policies that focus on performance management and organisational design. The article identifies the ‘causal mechanisms’ that characterise the specific role of institutions and considers both the role of context and the importance of policy intersections.     

State reform and the ‘privatized state’ in Paraguay

This article uses Paraguay, in Latin America, as a case study in order to examine the difficulties of introducing state reform where the state itself has a long history of control by private interests. It shows how the ‘privatized’ nature of the Paraguayan state is central to an understanding of how it has functioned and responded to recent reform efforts. The article provides an overview of the Paraguayan public sector and identifies several of its peculiar features that are relevant to understanding the state reform process: its small size, high levels of inefficiency and ineffectiveness, rampant politicization and endemic corruption. The article examines the three major components of an externally driven state reform process that began with democratization in 1989: privatization of loss‐making state corporations, civil service reform and decentralization. It shows how the ‘privatized’ nature of the state has proved a major obstacle to these efforts and is a major factor in explaining their limited success. The article concludes by offering a pessimistic assessment of the likely prospects for state reform and highlights the danger that Paraguay could descend into a ‘failed state’. Copyright © 2002 John Wiley & Sons, Ltd.     

Civil service reform in post-communist Europe: the bumpy road to depoliticisation

This article seeks to explain why civil service reform trajectories have differed in post-communist Europe, and why reforms have so far not led to the de-politicisation of personnel policy. It argues that the communist legacy of over-politicised personnel policy, the mode of transition and the constellation of actors after the first free elections shaped the personnel policy and civil service reform dynamics in the period directly after the change of regime. However, in terms of reform outcomes, the road to de-politicisation of post-communist civil services posed too many obstacles to lead rapidly to successful reforms. Neither governments of the left and the right nor new generations of senior bureaucrats have an incentive to engage in efforts to de-politicise post-communist civil services. The context of post-communist transformation has tended to lock in a pattern of civil service governance that is characterised by high levels of political discretion.     

Downsizing the civil service in developing countries: the golden handshake option revisited

In recent years, more and more calls are being heard in a growing number of developing countries to downsize their civil services. It is argued that downsizing is needed because of the increasing shortfalls in government recurrent and development budgets. This situation results in underutilized, underfunded staff and often in the siphoning-off of donor funds in the development budget for recurrent expenditure. The main problems addressed in this article are why should and how can the civil service in developing countries be downsized. The questions of how much to trim the bureaucracy and how to redeploy redundant public servants in the private sector are also addressed. The article examines alternative strategies for significantly downsizing the civil service. It is contended that problems in this area are indeed common to many developing countries. Various golden handshake options for civil service leavers receive particular attention. It is suggested that economic jumpstart is a better term than golden handshake to characterize the incentives package offered to induce staff to accept voluntary redundancy. Civil service reform is not presented here as a panacea for all developing countries' ills. The article makes a number of mostly untried but nevertheless attractive suggestions that bring some fresh thinking to bear on a difficult issue. Paths and avenues worth exploring when starting to design civil service trimming operations are presented, including some of their limitations. The point is finally made that this type of downsizing is overdue in many places. The article should be considered as a contribution to demystifying the process of downsizing the civil service in developing countries. © 1998 John Wiley & Sons, Ltd.     

Competency, Bureaucracy, and Public Management Reform: A Comparative Analysis

Competency can be considered a central theme in contemporary public service reforms. This article analyzes the development of competency frameworks for senior public servants at the national–government level in three countries (the U.S., the U.K., and Germany). By tracing the development of competency as an idea, it is shown that competency reforms drew selectively on management ideas, and by tracing the nature and time-patterns of competency reform developments in the three countries, it is shown that competency came onto the reform agenda at different times and by various routes rather than by a simple pattern of international policy transfer or business-to-government transfer. It is argued that the adoption of competency frameworks took place at critical junctures for preexisting public service bargains or agreements in each case and that they were shaped by the particularities of institutional context. However, although competency is arguably central to public service reform, it is far from clear that the competency frameworks in these three cases contributed to the declared aims of many contemporary public service reformers.     

The Long March Through Whitehall: A Comment on Lowe and Pemberton,The Official History of the British Civil Service,Volume II: 1982–1997

The Thatcher‐Major ‘permanent revolution’ massively changed the British civil service and Whitehall. The political clout provided by strong prime ministerial backing was a key factor in sustaining the momentum of change over the 1980s and 1990s. The process of change developed piecemeal, in a step‐by‐step and, in some ways, even haphazard fashion, with ‘New Right’ ideology just one factor. Economic and financial constraints were important in driving and sustaining the Whitehall efficiency drives and managerial reforms of the period. Support from managerially minded insiders and skilful prime ministerial businessmen advisers brought in from outside were also crucial. In contrast, the Johnson government's approach to civil service reform may be self‐defeating if it creates too much instability and needless strife, rather than building on ideas and building up support at different levels from within Whitehall itself.     

Civil service policies in Indonesia: An obstacle to decentralization?

Decentralization of a substantial portion of development activity under Indonesia's New Order has been attempted in the context of centralizing civil service reforms. This analysis, based on field observation in two areas distant from the ‘bureaucratic centre’ of Java, South Sulawesi and East Nusa Tenggara in early 1986, shows some ways in which the structure of the civil service and recent policies governing it have handicapped regional governments in their attempts to develop an apparatus capable of managing decentralization. For example, the structure often leads local officials to prefer rank over technical qualifications in appointments to managerial positions. The analysis also shows how they cope and attempt to maintain their legal prerogatives vis-à-vis the central government. In conclusion policy recommendations are offered that would help to achieve a better balance between the New Order's concerns for centralization and decentralization.     

Accountability and Leadership in Twenty‐First Century Whitehall

In July 2013 the UK's coalition government published “The Civil Service Reform Plan – One Year on”, reporting on progress against minister Frances Maude's objectives to shake up the civil service. This followed various reported disagreements between ministers and civil servants over policy implementation, and a research report commissioned by the government from think tank IPPR into lessons from overseas for civil service reform. This trio of short articles reviews the government's proposals from three perspectives: that of the lead author of the IPPR report, a former senior civil servant, and the chair of the House of Commons Public Administration Committee (PASC) which oversees the civil service. The authors take differing views on the proposals, which include introduction of ‘extended ministerial offices’, and greater control by ministers over choosing their civil servants. Should these be seen as useful next steps, worrying developments, and/or large and important enough to merit a Commission on the civil service, as PASC has suggested?     

The specificity of public service reform

Despite universal recognition of the decline of public services and the need for reforms, considerable divergence of views exists on the strategy and sequencing of reform for individual countries according to their capacities and level of development. This article reflects on the general contours of public service reform, emphasising past experience, the need to be pragmatic rather than idealistic, the mudding of the waters by the New Public Management movement, the complications of structural adjustment programmes of international financial institutions and the damage resulting from the imposition of universal solutions unfitted and unsuitable to local circumstances. Reform needs political and bureaucratic champions, careful preparation, patience and necessary investment, and capacity to neutralise opposition. Ultimately, one has to allow for a shifting combination of history, culture, politics, economics, sociology, ideology and values in each country. This analysis is applied to the possibility of reforming the public service of India, the second most populous country in the world, and the lessons to be gleaned for developing and implementing the strategy. The article then concludes with an outline of some universal problems facing public service reformers all around the globe such as corruption, the future role of government, shape of the civil service, reversing its erosion and addressing issues of fragmentation, compensation and diversity. Copyright © 2004 John Wiley & Sons, Ltd.     

Women in the Zambian civil service: A case of equal opportunities?

There is a paucity of empirical microlevel studies of women in the formal sector in developing countries. This article attempts to redress this deficit and focuses on the position of women in the Zambian civil service using information from a sample of personnel records. Although women are disproportionately represented in the civil service compared with other areas of the formal economy, the current positions of males and females are significantly different. However, the results of the survey are not easily encompassed in prevailing theoretical frameworks and, rather surprisingly, it appears that it is age rather than gender that is the crucial explanatory variable. Finally, a number of possible explanations are advanced to account for our findings.     

How ‘integrated’ is integrated rural development? The case of the Pompengan Integrated Area Development Project (PIADP), Luwu district,South Sulawesi,Indonesia

Integrated rural development is often presented as an effective strategy against rural poverty in Indonesia. In this article the author discusses the case of the Pompengan Integrated Area Development Project (PIADP) in Luwu, South Sulawesi, Indonesia, where a programme for land reform was part of the ‘integrated’ approach. In explaining the outcome of PIADP, the author analyses two properties of intervention itself in relation to the context in which it took place: first, land reform as a donor development priority which was planned and implemented as a purely technical and administrative operation; and, second, the production-oriented character of planning, which further isolated land reform from its local context. It is concluded that PIADP was characterized by fragmentation, competition and conflict rather than ‘integratedness’. Therefore, rather than taking such policy language for granted and accepting the policy instruments it represents as ‘models for development’, we should critically analyse the sphere of policy implementation. In the case of rural development in Indonesia, the depoliticized character of land policy and its reduction to a technical-administrative routine is a major issue to be addressed before land reform and integrated rural development can make a significant contribution to the eradication of rural poverty in Indonesia.     

Civil society participation in global governance: Insights from climate politics

A rather unique feature of global climate negotiations is that most governments allow representatives of civil society organisations to be part of their national delegation. It remains unclear, however, why states grant such access in the first place. While there are likely to be benefits from formally including civil society, there are also substantial costs stemming from constraints on sovereignty. In light of this tradeoff, this article argues for a ‘contagion’ effect that explains this phenomenon besides domestic determinants. In particular, states, which are more central to the broader network of global governance, are more likely to be informed of and influenced by other states' actions and policies toward civil society. In turn, more central governments are likely to include civil society actors if other governments do so as well. This argument is tested with data on the participation of civil society organisations in national delegations to global climate negotiations between 1995 and 2005. To further uncover the underlying mechanisms, the article also provides an analysis of survey data collected at the United Nations Framework Convention on Climate Change (UNFCCC) negotiations in Durban in 2011.     

An Invidious Position? The Public Dance of the Promiscuous Partisan

Public service mandarins were once largely anonymous, diligently wielding their great power behind the scenes while their political masters performed on the front stage. Things have changed. Today, civil service leaders are appearing publicly more often, in more places and to a wider range of audiences than ever before. This article examines the extent to which this decline in anonymity impacts on traditions of civil service impartiality within the Westminster system. It draws on the late Peter Aucoin's concept of ‘promiscuous partisanship’ to examine how contemporary mandarins in the United Kingdom, Canada and Australia face accusations of having compromised their impartiality by advocating for the policy agenda of the government of the day. The article argues that what has changed is not that civil service leaders have suddenly become partisan, but rather that they have become more ‘public’, allowing for perceptions of partisanship to emerge.     

A revolution in Whitehall? Changes in British central government since 1979

Since the Conservatives came to power in 1979 there have been important changes in British central government which have their intellectual origins in managerialist thinking of the 1960s, but owe their recent implementation to the commitment of the Prime Minister to reform the civil service along lines advocated by ‘new right’ or ‘public choice’ theorists. While most institutional reforms of departments were for political reasons, changes in the processes of the civil service can be seen as an extension of developments beginning with the Rayner Scrutinies, and moving through the Financial Management Initiative and the Efficiency Strategy to Executive Agencies. The British unified civil service is challenged by pressures for fragmentation, but limits to the changes are set by the dominance of the concepts of ministerial responsibility to Parliament, parliamentary audit, and of Treasury control.     

The Civil Service Reform Plan One Year On,and the International Evidence

In July 2013 the UK's coalition government published “The Civil Service Reform Plan – One Year on”, reporting on progress against minister Frances Maude's objectives to shake up the civil service. This followed various reported disagreements between ministers and civil servants over policy implementation, and a research report commissioned by the government from think tank IPPR into lessons from overseas for civil service reform. This trio of short articles reviews the government's proposals from three perspectives: that of the lead author of the IPPR report, a former senior civil servant, and the chair of the House of Commons Public Administration Committee (PASC) which oversees the civil service. The authors take differing views on the proposals, which include introduction of ‘extended ministerial offices’, and greater control by ministers over choosing their civil servants. Should these be seen as useful next steps, worrying developments, and/or large and important enough to merit a Commission on the civil service, as PASC has suggested?     

Government employment and pay: the global and regional evidence

Against the background of paucity of complete and reliable data as the basis for sound policy, this article reports on the results of a major international survey of government employment and wages in about 100 countries. Key findings are that: in developing countries as a whole, relative government employment is now less than half the level of OECD countries; the reduction in the role of the state in the ‘decade of adjustment’ is striking, and so is the erosion in real government wages in the poorest countries—particularly in anglophone Africa; decentralization in Latin America is visible in the substantial shift of employment from central to subnational government levels; and the lean and well-paid civil service of East Asia is one possible reason why rapid economic growth could coexist for so long with the governance weaknesses that have surfaced in the form of the Asian crisis. The article then undertakes an aggregate cross-sectional analysis of the determinants of government employment. In Africa and Latin America, relative government employment is positively associated with per capita income and the fiscal deficit, and negatively associated with relative wages and population. Clearly, the tendency for government to expand as the economy grows—the so-called ‘Wagner law’—is still operative in developing countries. However, it seems no longer at work in OECD countries, suggesting that Wagner's law ceases to operate beyond certain per capita income level. The article concludes, nevertheless, with a reminder of the limits of cross-sectional analysis: even ‘good facts’ prove little by themselves—good analysis and policy must rest on country-specific quantitative and qualitative evidence. Copyright © 1998 John Wiley & Sons, Ltd.