TACR: Kiribati: Small Scale Technical Assistance for …...310 North Pitt Street Alexandria, VA...

310 North Pitt Street Alexandria, VA 22314-2509 0 Phone: (703) 683-3793 0 Fax: (703) 683-3863 0 E-Mail: [email protected]

May 15,200 1

Mr. Luigi Bodda Project Economist Office of Pacific Operations, POHQ Asian Development Bank 6 ADB Avenue, Mandaluyong City, 0401 MM P.O. Box 789,0980 Manila, Philippines

Ref TA No. 3404-KIR; Submission of the Final Report

Dear Mr. Bodda:

In accordance with the project Terms of Reference, Business and Government Strategies, International (BGSI) is pleased to submit three (3) copies of its Final Report for the above referenced Project. The Report incorporates the comments received at the project’s Final Tripartite Meeting held March 19,200 1.

I have also included a CD-ROM as part of the report that contains copies of selected files and background information PSO might find useful in the continuation of its public service reform efforts. We trust that the report meets with your approval.

Thank you for all of your assistance and support during the project.

Sincerely yours,

Senior Associate 1

Encl. Three (3) copies of the Final Report

ACKNOWLEDGMENTS

Although this report is submitted as a product requirement of the ADB contractor, it represents the combined efforts and contributions of many people witbin the Public Service Office who dedicated their unique and different talents and skills to envision the Office’s fbture.

Many of the employees offered thoughtfkl ideas, presented questions, and voiced thek concerns during the various project stages. Stakeholders, including Ministry officials and administrators, employee groups and associations, and other external agencies and organizations were consulted. The PSO Team (project counterparts) provided the Consultant with generous amounts of their personal time as they sometimes anguished with concepts and “unexplored” possibilities for enhancing the Office’s institutional capacity. The results of these efforts are the basis of this document.

A special word of thanks is due the staff of the Management Services Unit and the Management Infomation Office for having to put up with the Consultaut’s work demands, quirks and digressions-spraying mosquitoes and requiring a “cold” environment, and enduring his somewhat “anal retentive” behavior in insisting that things be done just so. They are also to be commended for their individual, high quality work products. Much of this report is the result of their work and assistance as part of the “Learning by Doing” program initiated by the Consultant.

Business and G o v m e n t Strategies International and the Consultant wish to extend their sincerest appreciation for everyone’s assistance and other contributions given to this project effort.

FINAL REPORT PAGE i

TABLE OF CONTENTS

Letter of Transmittal Acknowledgements Table of Contents ................................................................................................................................ i

Executive Summary ....................................................................................................................... E-1 I . IJTI'RODUCTION ................................................................................................................ 1

Project Established ................................................................................................................ 1 Objectives and Scope ............................................................................................................ 1 Historical Perspective: PSO Restructuring Efforts Prior to ADB Project ............................. 2 About Change and Change Management .............................................................................. 3 About Public Service Reform ............................................................................................... 3 Fine Tuning the Project Scope of Work ................................................................................ 5 Project Design, Approach, and Methodology ....................................................................... 5 Project Execution and Management ...................................................................................... 6 Project Deliverables and Outputs .......................................................................................... 7

Acronyms and Abbreviations .......... .......................................................................................... 1v

Project Risks and Assumptions ............................................................................................. 8

II PROJECT CHRONOLOGY AND WORK PROGRAM ...................................................... 9 Project Mobilization ............................................................................................................. 9 Project Scoping Workshop ................................................................................................... 9 Situational Analysis Workshop ........................................................................................... 10 Project Meetings and Reporting .......................................................................................... 10 Inception Rep0 rt ................... ........................................................................................ 10 Diagnostic Review (Situational Analysis) .......................................................................... 11

Assistance Needs Identified ................................................................................... 11 Tripartite Meetings ....................... ................................................................................. 12 Final Tripartite Meeting ...................................................................................................... 12 Draft and Final Rep0 rt ........................................................................................................ 12 Unfulfilled Project Tasks .................................................................................................... 12

III . REVIEW AND ANALYSIS OF PROJECT ACTIVITIES ................................................ 14 Project Environment ........................................................................................................... 14 Project Activities and Accomplishments ............................................................................ 14

Review of Literature and Documentation .............................................................. 14 Policy Formulation ................................................................................................. 15 Management Information Systems ......................................................................... 15 Analysis of Functional Areas of Responsibility ..................................................... 15 New Organization Structure Developed and Recognized ...................................... 15 Job Descriptions Reviewed and Revised ................................................................ 15 PSO Office Networked .......................................................................................... 16

N REVIEW OF PUBLIC SERVICE OFFICE ORGANIZATION STRUCTURE ................. 17 Organization Review Process ............................................................................................. 17 Results ofthe Review Process ............................................................................................ 17

Vision and Mission Statement ............................................................................... 17 Organization Restructuring .................................................................................... 18 Management Culture .............................................................................................. 21 Policy Formulation ................................................................................................. 21

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V .

VI .

VII .

VIII .

M .

X .

PSO Functional Areas of Responsibility ..................... ; .......................................... 22 Management Services ............................................................................................ 22 Program Coordination, Monitoring and Evaluation ............................................... 22 External Communication ....................................................................................... 23 Human Resources Development and Planning ....................................................... 23 Management Information Systems ......................................................................... 23

PROPOSED ORGANIZATION STRUCTURE ............................................................. 25 Principles of Organization ............................................................................................... 25 Standard Nomenclature ................................................................................................... 26 Organizational Issues ...................................................................................................... 26 Proposed Organization Structure ..................................................................................... 26 Recommendations ........................................................................................................... 27

JOB CLASSIFICATION AND PAY .............................................................................. 29 Methodology ................................................................................................................... 29

Study Orientation and Start-up ........................................................................... 29 On-site Employee and Supervisor Job Interview ................................................ 29 Evaluation of Internal Alignment . .......................................... 30

Classification of Posts ............................... ...................................... 31 Changes in Job Titles and Concepts .......... ...................................... 31

Current Job Descriptions . ......................................................................... 31 Pay Plan .......................................................................................................................... 32 Results of Salary Survey ................................................................................................. 32

PERFORMANCE MANGEMENT SYSTEM ................................................................ 34 Purpose ............................................................................................................................ 34 Principles of Good Governance ....................................................................................... 34 Governance Criteria ........................................................................................................ 35 Performance Criteria, Measures, Indicators, and Performance Management .................. 36

Toward the Development of Governance Performance Criteria ......................... 36 Government Reinvention ................................................................................................ 37 Organization and Operations Manual .............................................................................. 37

ANALYSIS OF COMMUNITY A’ITITUDE AND EMPLOYEE SATISFACTION QUESTIONNAIRE RESULTS ....................................................................................... 39 Methodology ................................................................................................................... 39 Analysis of Community Attitude Survey ......................................................................... 39

Demographics ........................................... .................................................. 40 nistry Services .......................... 40

Analysis of Employee Job Satisfaction Survey ............................................................... 41 Conclusions and Recommendations ................................................................................ 42

Community Attitude Survey .................................... ...................................... 42 Employee Job Satisfaction Survey ..................................................................... 42

Attitudes and Opinions Regarding PSO an

LESSONS LEARNED .................................................................................................... 43 Organizational Change .................................................................................................... 43

PUBLIC SERVICE? LEADERSHIP: A VISION OF THE FUTURE .............................. 44 Vision, Mission and Goals for the Future ........................................................................ 44

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1.

1. 2.

1. 2. 3. 4.

1. 2. 3. 4. 5. 6. 7. 8.

Future Organization Development .................................................................................. 44 The Future Role ofPSO .................................................................................................. 45 Project Sustainability-Maintaining Momentum.. ......................................................... .46 Future Risks and Countermeasures ................................................................................. 47 Recommendations for Future Action ............................................................................... 47

CHARTS

Chart 1. Proposed Organization Structure ...................................................................... 28

FIGURES

Mehta’s Matrix on Good Governance Indicators ........................................................... . 3 5 Implementation Plan ....................................................................................................... 48

TABLES

Public Service Reform vs. Public Service Management .................................................... 4 Draft PSO Mission Statement ......................................................................................... 19 GovernmentlCitizens Contract ....................................................................................... .20 Relative Value of Factors ................................................................................................ 30

APPENDICES

Terms of Reference Consultant’s Work Plan Alphabetical Listing of Persons Contacted Policy Formulation Model Classification Plan Pay Plan Performance and Management Aubts Community Attitude and Employee Job Satisfaction Questionnaires and Data

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ACRONYMS AND ABBREVIATIONS

ADB AIEC BANK BGSI DFR DS/DPS GOK HRP HRM IT KJR LAN MBO MFEP MI0 MIS MSU NGAs NGOs NJB OB OD 0s PAM PDQ PO PS PSO PSI PSR PSM ROK TA TM TOP TOR USA WAN

Asian Development Bank Advocacy, Wonnation, Education, and Communications Programs Asian Development Bank Business and Government Strategies I n t d o n a l Drafl Final Report Deputy SecretaryDeputy Permanent Secretary Government of Kiribati Human Resources Planner Human Resources Management Idormation Technology Kiribati Local Area Network Management by Objectives Ministry of Finance and Economic Planning Management Wormation Officer Management Information System Management Services Unit National Government Agencies Non-Governmental Organizations National Job Evaluation Office of Te Beretitemti (Office of the President) Organidon Development

Position Appraisal Method Position Description Questionuaire Public Organization

Public Service Office Public Service Inspector Public Service Reform Public Service Maintenance Republic of Kiribati Technical Assistance Tripartite Meeting Total Organization Participation Terms of Reference United States of America Wide Area Network

operating system

Permanent secretary

EXECUTIVE SUMMARY

1. The following summarizes the pertinent findings, observations, and recommendations of the Final Report. It is intended to give the reader a glimpse of what is contained in the report. The Final Report provides a full discussion of the subjects presented and more.

Introduction

2. The Asian Development Bank (the Bank) approved a Small Scale Technical Assistance grant to the Republic of Kiribati, Public Service Mice (PSO) to finance the services of a Consultant to assist the PSO in conducting a review of the Kiribati public service. This activity is considered the first step in an overall public sector reform program in Kiribati. Business and Government Strategies (BGSI), Alexandria, Virginia, was contracted by the ADB to provide a consultant to carry out the tasks as specified in the project Terms of Reference (TOR).

3. The overall goal of the TA is to assist the PSO redefine its mission and role in view of the emerging needs of the public service and fiscal constraints currently confronting the Republic of Kiribati. The TA focused on the policymaking, management systems design, and monitoring and evaluation requirements. In addition, the project assisted PSO: (i) to strengthen its own capacity to better deliver services as defined under Policy Statement 2000, (ii) define how it will support the strengthening of the capabilities of other ministries and agencies of government to enable them to deliver public services to their clients more effectively and &iciently; and (iii) to give greater emphasis and oversight to the development of the Kiribati public service.

Background

4. Since 1993-aver 8 yews-beginning with the functional review of PSO conducted by KPMG, considerable time and effort has been expended by the PSO to introduce effective and lasting organizational change. These efforts have been prompted by the best of intentions and motives. However the PSO has consistently been unable to conclude the processes successfully and effectively. As of this year, the process had not yet been completed sufficiently well to allow managers to have a complete description of their functional responsibilities or properly developed job descriptions. This is a result of a lack of proper planning and process in carrying out the work and absence of discipline in following up on matters in a timely manner. The responsibility for the state of this effort is not entirely that of PSO. It is a shared responsibility of all parties involved at all levels.

5. Recently, the PSO has engaged in an organizational review and restructuring effort that produced a report recommending a proposed organizational structure. This document servd as the “jump off point for discussions, review and recommendations for the joint structure recommended. Steps were taken to improve the Public Service, but these efforts were fragmented and results were limited at best.

Project Outputs

6. Under the ADB contract, the following outputs and ddiverables were expected of the Consultant: An Inception Report, bimonthly progress repom, a Draft Final Report, for discussion at the final Tripartite meeting, and a Final Report. Occasional papers and special reports were prepared as necessary. Also required were: specific recommendations for improving the organizational structure,

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work processes, project monitoring and evaluation, policy and program development, human resources management systems, including staff deployment and development, information systems requirements, management systems, operating procedures, and facilities.

Project Risks and Assumptions

7. There is a risk that some findings may require further adaptation of existing plans and recommendations in order to achieve the results desired by PSO. This in turn may create some uncertainty or resistance to change within the organization.

8. Another potential risk is the Government’s policy and practice with respect to the rotation of administrative &--known as the Administrative and Junior OELicer Cadre. This practice threatens organizational continuity, loss of institutional memory, and the depletion of technical skills when administrative staff is assigned to technical positions.

9. Sustainability of TA project ef€orts may be at risk if the funding necessary to sustain the broader public sector reform program is not made available to or by the Government.

Organizational Review

10. The organization review process involved a series of independent and joint reviews of several organizational models. Various alternative structures were reviewed. The resulting recommendation represented a consensus achieved after applying universal organization principles, the results of a review of PSO’s current and future mission, and a general review of PSO operations. Several ‘‘ned’ fimctions recommended could be p l d alternatively in other orgarmation units outside PSO. The recommendation to place these functions in PSO is the realization that much of what is proposed for this unit to handle is currently being done to a greater or lesser extent by PSO already.

Job Classification and Compensation

11. The PSO requested the Consultant to assist it With reviewing and updating its National Job Evaluation Study and to make recommendations for establishing internal equity between the various job classifications within PSO. A separate report was produced critiquing recommendations and was taken into consideration in the overall recommendations covering restructuring, job classification, functional areas of responsibilities, and the like.

Performance Managem en t System

12. The report sets forth those elements for consideration in developing a performance measurement system. A framework is presented for government consideration, if and when, it decides to establish a performance management system. The framework for establishing and institutionalising a performance measurement system would be accomplished through the establishment of a management audit system and corresponding organizational unit within PSO.

Community Attitude and Employee Job Satisfaction Surveys

13. An analysis and interpretation of questionnaire responses received from various respondents to

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two surveys conducted during the period February 21-27, 2001 is presented. The first survey questionnaire was randomly executed in public places. by trained interviewers who selected people by choice and on the basis of their (persons contacted) willingness to participate. The community attitude survey sought to obtain the level of knowledge and satisfaction of the general public with the Public Service Office and its services. This survey also asked respondents about their satisfaction with services received from other ministries and agencies of government. The results indicated a general satisfaction with PSO and the quality and level of government services provided.

14. The second survey questionnaire was an employee job satisfaction survey. All staff of the Public Service offrce available on the day the survey was executed, February 26,2001, was included in the survey exercise. This survey indicated that employees were generally satisfied with their work environment, the distribution of workload, and compensation.

Lessons Learned

15. One of the most important lessons learned by the participants of this project is that change often takes place slowly and that the process is more complicated that it may initially appear. Satieing the divergent vested interests of the many organizational units and individuals often requires additional time not planned, delicate negotiations, constant reassurance that risks are limited, and the development of trust and respect. We found that even the best laid plans and simplistic solutions are difficult to accomplish or implement because of the behavioral factors involved in the [change] process.

Public Service Leadership: A Vision of the Future

16. The organizational development and change management process has really just begun within PSO. Efforts to date toward building an institutional culture of strategic thinking, collaboration among internal actors and partners in the delivery of public services, and coping with organizational stress brought about by rapid change merely constitute a good beginning. It is obvious that additional work is necessary in further developing the institutional and individual skills within PSO that are still lacking. The development process and capacity building will require both short and long-term interventions, i.e., a combination of training, on-the-job training, and educational programs, that latter being long-term.

Summary of Recommendations

17. A summary of recommendations listed by page number follows:

a Page 4, The Republic of Kiribati must decide what course of action it wants to take in the future with regard to its reform activities. Will it be one of Public Sector Reform or Public Sector Maintenance? If it’s Public Sector Reform, the Government must recognize the far reaching implications of broad reform and also has to be prepared to finance the cost thereof.

b. Page 18, Review, consideration and adoption of a revised PSO Mission Statement as suggested in Table 2.

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C.

d.

e.

f.

8.

h.

i.

j.

k.

1.

m.

n.

0.

P.

Page 19, Review and consideration of the GovernmentlCitizen’s Contract suggested in Table 3 as a means of improving and maintaining good citizen relations in Kiribati.

Page 21, That the Government of Kiribati reviews its current policy regarding the use of Administrative and Junior Officer cadres in technical positions. The Consultant recommends against such a practice as it depletes skills and abilities and has a negative d e c t on organizational continuity when transfers are made.

Page25, Review and consideration of the recommended “standard nomenclature” for describing organizational units.

Page26, Review, consideration and adoption of the proposed organizational structure presented in Chart 1 on page 27.

Page 29, Adopt the Position Allocation Method point factoring system proposed with the weightings as presented in Table 4.

Page 30, Consolidate the number of job classifications from 16 to 12 as recommended in the box on page 30.

Page 30, Review and consider the renaming of various positions and creation of new posts as described on page 30.

Page 30, Review and consider the adoption of a form of the classification plan as outlined in Appendix 4.

Page 30, Review and consider the adoption of a form of pay plan as outlined in Appendix 5.

Page 35, The Government should consider establishing a performance measurement system along the lines of the system outlined in Chapter W.

Page 41, PSO should prepare and conduct a community awareness program in order to acquaint the various ministries, NGO’s, and other potential partners in the delivay of public services with its programs and services.

Page 4 1, PSO should establish a “new employee” orientation program.

Page 41, PSO should establish a system for receiving, processing, resolving, and filing the complaints received from the general public and government agencies.

Page 41, The PSO Management Services Unit should initiate a program for reviewing the decision-making process for making work assignments in PSO. A similar review is need for the distribution and uses of equipment, materials, and supplies.

Page 44, Review and consider the actions outlined for the future development of PSO and project sustainability: team building, building capability of managers, emphasis

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on problem solving, experimentation with new approaches to management and services delivery.

r. Page 47, PSO should complete the preparation and distribution of the Organization Manual developed.

s. Page 47, Continued emphasis should be placed on management training with priority being given to leadership slalls, delegation and decision-making, principles of organization, team building, operations research, systems analysis, techcal report writing, strategic planning, and policy analysis.

t. Page 47, PSO should monitor closely the workload demands of all PSO units in order to enable a proper review of workload and staffing criteria

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FINAL REPORT page 1

L INTRODUCTION

1. This Dr& Final Report has several objectives. First, it is intended to provide a historical account of project activities and accomplishments occurring during the life of the project. Second, it discusses changes that have taken place as a direct result of technical assistance interventions as well as those that are the result of the Public S d c e office’s (PSO) own initiatives. Thirdly, it sets forth an analysis of the strengths and weakness of the PSO before and after the project. The report also indicates work remaining to be completed, other work tasks need to maintain project momentum, and lessons learned in terms of project planning, management and administration, and appropriate technology transfer methodologies.

Project Established

2. The Asian Development Bank (ADB) approved a Small Scale Technical Assistance grant to the Republic of Kiribati, Public Service Ofice (PSO) to finance the services of a Consultant to assist the PSO in conducting a review of the Kiribati public service. This activity is considered the first step in the completion of an overall public sector reform program in Kiribati.

3. The Asian Development Bank invited and subsequently contracted with Business and Government Strategies (BGSI), Alexandria, Virginia, to provide a consultant to carry out the tasks as specified in the project Terms of Reference (TOR). The project TOR is attachedas Appendix 1.

Objectives and Scope of the TA

4. As stated in ADB’s TOR, the TA is aimed at meeting five basic objectives: (i) Assisting the Ministry of Finance and Economic Planning (MFEP)/Public Service Wtce (PSO) Joint Task Force on Redundancy to undertake the following: (a) a review and assessment of the organization structure and capacity of the PSO to better fulfill its functions as specified in Policy Statement 2000, (b) identify options for increasing the efficiency and effectiveness of core service delivery and cost recovery, (c) identify the appropriate role of government vis-a-vis other service providers and develop a corresponding long-term vision of post reform government, (d) conduct an exhaustive review of the organization structure and institutional capacity of MFEP as described for PSO above, (e) formulate and deliver a presentation to Cabinet, Parliament, and the wider community on the nature, purposes, and benefits of public sector reform; (ii) transfer knowledge and skills; (iii) establish effective coordination with the MFEP consultant team in capacity building in the MFEP; (iv) prepare an inception report; and, (v) prepare and submit a Final Report.

5 . The overall goal of the TA is to assist the PSO redefine its mission and role in view of the emerging needs of the public service and fiscal constraints currently confronting the Republic of Kiribati. The TA focused on the policymaking, management systems design, and monitoring and evaluation requirements of the public service in Kribati now and, to the extent determinable, the foreseeable fbture.

6. In addition, the project is to assist PSO: (i) to strengthen its own capacity to better deliver services as defined under Policy Statement 2000, (ii) define how it will support the strengthening of the capabilities of other ministries and agencies of government to enable them to deliver public seryices to their clients more effectively and efficiently; and (iii) to give greater emphasis and


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oversight to the development of the Kiribati public service.

7. In achieving the project objectives, the Consulkt will assist PSO, MFEP, and the Task Force on Redundancy in accomplishing the following:

Strengthen its overall capability and redefiiing its role and responsibilities, outputs, performance indicators, and evaluation parameters that are appropriate under Policy Statement 2000,

Expand its capacity for policy and management systems analysis and development,

Improve its work processes, i.e., its policy planning and formulation, decision-making, and accountability, management and idormation systems, etc.,

Enhance advocacy, information, education, and communications (AIEC) programs,

Identify institutional staffing requirements and training needs,

Articulate the PSOs policies, roles, responsibilities, functions and programs, and to establish a coordination framework for use in dealing with other government ministries and agencies involved in public services delimy.

Historical Perspective: PSO Restructuring Efforts Prior to ADB-Project

8. Since 1993--over 8 years-beginning with the functional review of PSO conducted by KPMG, considerable time and effort has been expended by the PSO to introduce effective and lasting organizational change. These efforts have been prompted by the best of intentions and motives. However the PSO has consistently been unable to conclude the processes successfully and effectively. As of this year, the process had not yet been completed sufficiently well to allow managers to have a complete description of their functional responsibilities or properly developed job descriptions. This is a result of a lack of proper planning and process in carrying out the work and absence of discipline in following up on matters in a timely manner. The responsibility for the state of this effort is not entirely that of PSO. It is a shared responsibility of all parties involved at all levels.

9. Recently, the PSO has engaged in an organizational review and restructuring effort. Formal documentation describing the history and basis for this structure was limited to information described in two reports made available to the consultant for review: “A Proposed Structure for the Public Service OfEce, October 2000” and “Kiribati Public Sector Review: Functional Review, 1993.” Some information regarding the original intent, purpose and initial functional duties and responsibilities were available in several memoranda and other file notes.

10. There have been several in-house workshops and consultations conducted in consideration of the restructuring issues pertaining to PSO. PSO senior and middle management levels have ongoing meetings and discussion regarding departmental re-organization issues. These meetings gave impetus to the proposed structure included in the first document mentioned above. These documents and recommendations were reviewed and served as an organizational point of reference as well as the basis for the consultant’s independent review and recommendations.

11. When the consultant arrived on-site, it was clearly evident that PSO senior management was

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eager to act on the issues at hand. They are to be commended for their interest, enthusiasm, and perseverance. Subsequently, the PSO management team and the Consultant developed a joint recommended organization structure that was based on sound principles of organization. The recommendations were presented it to the President and Cabinet for their consideration. The details of the recommendations offered are discussed later in this report.

About Change and Change Management

12. The Government of Kiribati has been in a state of constant change since its independence. Globalization in economic activity and communications has integrated the interdependencies among nations and among peoples. Problems, which would have gone unnoticed years ago, now receive considerable attention and increased demands for action, usually from other governments and institutions. The PSO is mandated with the primary responsibility for preparing the Government of Kiribati to meet these demands and therefore the Government must adapt itself to better address these the new demands. The structural and operational enhancement of PSO is a major focus of this technical assistance.

13. It should be noted that “change,” threatens all organizations and individuals within it--especially change that originates from outside the organization. Trusted and known ways of accomplishing tasks are disturbed; existing reporting and communication channels are uprooted, and the final effects on work processes (and on individuals) are uncertain and therefore suspect or cause for concern. Change is always accompanied by uncertainty, but unless this uncertainly is addressed in an orderly fashion, it can lead to confusion, reduced performance and abridged accountability.

14. The effective management of change within an organization depends on many factors. Three of the most important factors are: (1) the acceptance of the necessity of change, (2) the ability of management to manage the change process, and (3) the nature of the communications and participation processes surrounding change. The ability of The PSO to manage change effectively within its environment is believed to be sufficient in that the processes employed have been transparent and participative.

About Public Service Reform

15. There appears to be uncertainty or a misunderstanding among some government officials in Kiribati regarding what public service reform is and what it is not. It is worthwhile taking time here to define what public service reform is in contrast to public service maintenance. These terms are often used synonymously by many--but are done so incorrectly.

16. Public service reform is a planned intervention to raise the level of public service performance over a specified period. It is different from the mechanisms to ensure that the public service maintains the level of performance it attains with periodic improvements. Public service reform must have carefully defined goals and a strategy to attain those goals within a specified period. Public service maintenance deals with routine maintenance and improvement over time. In many countries, no clear distinction is made between the two.

17. What are the ultimate goals of public service reform? Donors tend to stress fiscal stabilization whereas many governments want to see remarkable improvements in public service outputs, e.g., more effective and responsive services delivery. The latter requires the enhancement of human and

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institutional capacity, but the former focuses on cutback management, the reduction of costs and numbers in the public service. The table below shoys the relative differences between public service reform and public service maintenance.

Table 1. Difference in Characteristics of Systems Reform and Maintenance

18. The expectations of most reforms are to reduce resources going to the public service. In fact, effective public service reform normally increases the level of resources, human and financial, available in public services. Public service reform is about the efficiency with which resources are utilized, hence necessitating functional reviews, detection of ghost workers, eliminating waste and substantial downsizing of excess junior and senior level staff Public service reform also requires the injection of more resources in terms of:

0 “Rightsizing”--offering competitive wages that will attract and retain skilled professional personnel at middle and senior levels;

0 improving the work environment and making operational equipment available;

0 decentralize operations and implement mechanisms for monitoring operational effectiveness and accountability.

19. Therefore, public service reform is about finding resources to finance reforms. There is also a cyclical linkage between public service reform and economic growth. Higher levels of economic growth, usually spurred by the private sector, make effective reform of the public service possible.

20. However, without reforming the context of public service functions, reform of the public service may have limited impact. For instance, it may also be necessary to revitalize parliament and the judiciq, if the public service is to be reformed. A parliament has an important role to play in driving accountability through scrutiny of public accounts. Similarly, the judiciary can ensure that contracts will be enforced cheaply and reliably, thus providing a critical element for the enabling environment for business. Moreover, local (and regional) governments play a key role in the delivery of public service. Therefore, if no attention is paid to these institutions, the overall goal of increasing public sector efficiency is likely to be incomplete.

21. The Republic of Kiribati must decide what it wants to do in the context of the definitions given above-public service reform or public service maintenance. If public service reform is the choice,

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the Government must be prepared to commit the required resources and time to achieve reform.

Rae Tuning The Project Scope of Work

22. While the project goals and objectives were relevant to the TA, the work plan, timetables, and schedules required reconsideration and adjustments in order to make the TA more meaningful and responsive to the needs of the PSO. The additional insights and perspectives garnered as a result of discussions with PSO senior management, initial meetings with MFEP and other ministries, and the project scoping exercise conducted with PSO senior management were incorporated into the Consultant’s work plan and implementation schedule.

23. The work program also took into consideration the concerns of the Ministry of Finance and Economic Planning (MFEP) regarding its perceived limited capacity to engage in a full-scale review and restructuring of the Ministry. The basis for the Permanent Secretary’s concern was the current demand on staff resources. There were currently three streams of consultant activity underway in the Ministry and national budget preparation demands during the upcoming months made it nearly impossible for the Ministry to take on additional responsibilities in this area

24. An additional work element required under the TA was the provision of assistance to PSO/MFEP No such task force existed. There was a task force, however, established to review the National Job Evaluation Study begun in 1995. This task force described its mission as being limited to the review of the National Job Evaluation Study. If the Government is going to pursue public service reform, it should establish a task force with government-wide representation to oversee and coordinate the reform activities. At a minimum, this task force should comprise representatives from PSO, MFEP, Auditor General, Labor, Education, Health, and Environment.

Project Design, Approach and Methodology

25. The approach used in this TA was consultative, participatory and involved various stakeholders, both inside and outside the PSO. The approach combined a strong participatory process and locally appropriate technical interventions. Sustainability of the project design will depend on the level of ownership that the TA can engender within and among key stakeholders. Securing commitment to change through collaborative problem solving forms the basis of the TA strategy to maximize the sustainability of public sector reform.

26. Specifically, the project approach involved the following elements:

0 Encouraging a close and open working relationship with local counterparts;

0 Ensuring that all key stakeholders are kept fully informed of TA objectives; participate in planning, design and review activities, and that women and the poor (wider community) are fully involved,

0 Establishment of Technical Working Groups to facilitate the participation of stakeholders at each project site (PSO and MFEP);

0 Organizing information seminars and needs assessment workshops to create a common understanding regarding change processes among stakeholders and facilitating

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cooperation. These collaborative meetings will agree on the vision for the new environment, need for change, the processes involved, and the resulting benefits of change. A message of enthusiasm, opportunity, and ownership will be promoted through these meetings; and,

0 Ensuring that pahipatory processes are an integral component of the project design/Project Implementation Plan.

27. This approach allowed the Consultant to provide an enabling atmosphere for the PSO to self- manage its development process. This atmosphere permitted PSO to explore openly and to take risks in the search for new and adaptive behaviors in response to needed changes in its organizational and operational environment. The objective was to make PSO sensitive to change rather than manifesting reactive, defensive, withdrawal, or threatened behaviors. The anticipated result: a changed organizational culture as well as imposed organization structural changes.

28. The methods and techniques used for the TA consisted of interviews and meetings, a review and analysis of current organization structures and work processes, information and management systems analysis, stakeholder networking, application of various analytical models, review and application of “Best Practices,” and conducting various training Seminars and workshops. Meetings, interviews, and direct observations were used to access information about work processes, information and monitoring capacities, and environmental and operational constraints under which PSO functions.

29. The Consultant’s role in the TA was advisory and he primarily helped the PSO move toward being the lead national government agency for policy formulation and direction setting regarding personnel administration, management systems, methods and techniques, and program monitoring and evaluation. Thus, throughout the TA, the Consultant worked very closely with PSO officials and personnel as well as with other interested, non-PSO parties tasked to play specific roles in public sector reform to ensure that their views and opinions were taken into consideration in problem and alternatives analysis. The Consultant also assisted in undertaking a detailed analysis of policies, procedures, and systems in cooperation with PSO counterpart staff.

30. The Consultant held periodic meetings with the PSO senior management to ensure a regular exchange of views and information on the project and to obtain PSO’s valuable inputs into the process of restructuring. Other meetings were held with the OflFce of the Beretitenti, Secretary to the Cabinet, MFEP, and others to discuss the progress and accomplishments of the TA and to resolve any issues that s u r f a d .

3 1. A Concluding Tripartite Meeting was held to present project outputs, particularly the redefined PSO vision, mission, and organizational structure.

Project Execution and Management

32. The executing agency for the project-the agency that has the overall responsibility for ADB sponsored loans and technical assistance projects-is the Ministry of Finance and Economic Planning. The implementing agency for this Technical Assistance (TA)--the agency having responsibility for a specific project--is the Public Service Wice (PSO), office of the Beretitenti (OEce of the President). The project is under the direct leadership of Permanent Secretary Tan& Maamau, later changed to Acting Permanent Secretary, Iamti Rakautu. The key contact person, designated as the PSO’s Deputy Project Director and focal person, was Public Service Inspector, Wiriki Tooma Ms. Tooma was given responsibility for day-today project oversight, coordinating PSO’ inputs into the TA, and liaising with other Ministries and ofices of government. Other PSO staff were identified and


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assigned to assist the project on an as needed basis. They assisted the Consultant in assembling data and information, interpreting data and information .collected, and coordinating meetings and other activities in those areas for which they are individually responsible. These included the two Assistant Secretaries assigned to the Management Services Unit (MSU): Ms. Tarsu Murdoch and Mr. Aaron Kabeia A description of Tripartite Meetings is provided later in the report.

Project management was also facilitated through the use of Tripartite Meetings.

Project Delierables and Outputs

33. Under the terms and conditions of the ADB contract, the Consultant has responsibility for delivering the following outputs and deliverables to PSO and ADB during the course of the Small Scale TA. Both required and value added item (shown in italics) to be delivered by the Consultant during the course of the TA are listed below:

0 An Inception Report, bimonthlypmgress reports, a Draft Final Report, for discussion at the final Tripartite meeting, and a Final Report. Also, occasional papers and special reports will be submitted as appropriate.

0 Recommendations for improving the organizational structure, work processes, project monitoring and evaluation, policy and program development, human resources management systems, including staff deployment and development, information systems requirements, management systems, operating procedures, and facilities.

0 Occasional training seminars and workshops are required to enhance the skills of counterpart staffand stakeholders (i.e., methods and techniques for conducting situational analyses, management audits, preparing mission and goals statements, functional statements of responsibility, salary plans, job descriptions, and the like.)

Assist in the preparation of a strategic operational plan, financial and human resource requirements, alternative organizational structures from which to select an option that best suits the PSO mandate and redefined responsibilities, and an implementation strategy for the plan.

0 A formal presentation to brief the Cabinet, Parliament, and wider community on the benefits of public sector reform.

0 If the project is to achieve success, it will have to change attitudes and modify behavior within PSO, refocus attention on facilitating other stakeholder’s involvement, and increase the sense of partnership among the various stakeholders. These attitudinal changes and behavior modifications will be difficult to measure and demonstrate, but will be strongly indicated by the active level of participation exhibited by other stakeholders with the PSO and Project Consultant. To this end, survey research methods and techniques will be utilized.

0 Various working papers and summary reports of workshops and training seminars and required Project reports, i.e., Inception Report, bimonthly progress reports, Draft Final Report, for discussion at Final Tripartite meeting, and a Final Report. Also, occasional papers and special reports would be submitted, as necessary and appropriate.


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0 Proposals for improving the organizational structure, work processes, project monitoring and evaluation, public service policy apd development, human resources management systems, including st& deployment and development, information systems requirements, management systems, operating procedures, and facilities.

Project Risks and Assumptions

34. There is a risk that some of the Consultant’s findings may require further adaptation of existing plans and recommendations in order to achieve the results desired by PSO. This in turn may create some uncertainty or resistance to change within the organization. This risk can be minimized or even eliminated through an effective communications effort by the project Consultant and PSO management.

35. Another potential risk to successful implementation of this TA in the long-term is the Government’s policy and practice with respect to the rotation of administrative staff-known as the Administrative and Junior Wicer Cadre. This practice threatens organizational continuity, loss of institutional memory, and the depletion of technical skills when administrative staff is assigned to technical positions.

36. Staff resistance to change is also a potential risk. Steps have been taken to communicate the nature and purpose of the public service review (and a PSO restructuring program in particular) as well as its likely impact on the individual status of employees.

37. Sustainability of TA project efforts may be at risk if the funding necessary to sustain the broader public sector reform program is not made available to the Government.


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IL PROJECT CHRONOLOGY AND WORK PROGRAM

38. This section of the report presents a chronology of project activities and events, and a discussion of the project work program, major workshops and training programs undertaken, and it discusses project reporting and related information dissemination responsibilities.

Project Mobilization

39. The BGSI consultant, Howard W. Edwards, was mobilized on July 30, 2000. The Consultant arrived in Kiribati on August 4,2000. The purpose of this initial, one-month visit was to scope the project, develop a work plan, prepare a brief inception report, and initiate the Consultant’s work plan in the time remaining. The Consultant’s work began on the afternoon of the first day of his arrival at the project site.

40. The managerial and administrative staff of the PSO arranged project support and backstopping. PSO provided the Project Consultant with ofice space in the Management Services work area. This is the area in which the Deputy Project manager is located. office space was equipped with a desk, chair, and a worktable. A local telephone line was available for the Consultant’s use. In addition, an IDD telephone line was installed for the purpose of establishing a project Internet account. The office was adequately lighted and air-conditioned. The office space met fully PSO’s agreement to provide adequate ofice space for the Consultant’s use.

Project Schedule and Work Plan

41. The Consultant’s on site visitation schedule was as follows:

TripNo. 1 August 2000 Trip No. 2 Trip No. 3

November 1 O-December 9 February 4-March 2001

42. The Consultant’s work plan appears as Appendix 2.

Project Scoping Workshop

43. A Project Scoping Workshop was conducted August 10, 2000, at the Manaeba, Office of the Beretitenti, for the purpose of facilitating the review and identification of key issues, concerns, and problems associated with restructuring and reviewing the operations of the PSO. The workshop covered such topics as the PSO’s role in the government, exploration of resource requirements, specific organizational and operational changes required, and the vision, mission, and future role of the PSO. This exercise was facilitated through the use of the TOP approach. All senior management stafF of the PSO attended the meeting.

44. The specific workshop objectives included the following:

0 To discuss the scope of the project, identify various problems, issues, and concerns, and work plan for the Consultant and PSO Counterpart S W ,

0 To achieve a common understanding of the scope of work and approach to the TA. ADB SMALL SCALE TECHNICAL ASSISTANCE

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0 To promote team-building between the Consultant and PSO management, and, more importantly, establish a good. appreciation of PSOs goals, visions, and program priorities in order to properly base teclmical assistance responses; and,

0 To establish appropriate lines of communication through which discussions of project progress and PSO inputs could be exchanged.

45. The Consultant believes that most, if not all, of the workshop objectives were accomplished.

Situational Analysis Workshop

46. A need for a Situational Analysis Workshop was identified during the “Visioning and Scoping Workshop.” Accordingly, a Situational Analysis Methods and Techniques Workshop was conducted November 22, 2000 at the PSO’s offices. The purpose of the workshop was to make sure that Consultant and Counterparts were spadung the same language with respect to PSO’s organization, structure, fbnctions and operations. The basic workshop objective was to review methods and techniques of conducting a Situational Analysis Study and to integrate counterpart resources into and to effect “team building” and work planning between the Consultant and PSO Senior Management. Eight persons-41 senior management stafT-attended the workshop.

Project Meetings and Reporting

47. Project Meetings and periodic reports were used throughout the project as a primary means of communicating with participants and interested parties about project progress, major findings, and accomplishments. The following paragraphs discuss briefly the various reporting requirements, methods, and vehicles used to report project progress, concerns, and related issues and to ensure As an outcome, the workshop participants agreed that the TA should do the following:

0 Use a consultative and participatory approach involving various stakeholders, both inside I and outside PSO, in order to generate project ownership;

0 Provide experience-based training opportunities to improve the basic skills, understanding and competencies of PSO staff and among other non-PSO stakeholders such as staff of MFEP, and, to change attitudes, values, and cultures in order to operate more effectively and efficiently within a changed work environment;

Provide a training seminar for counterpart staff that would cover methods and techniques of conducting management audits, job evaluations including desk audits’ compensation studies, and the like.

0 Involve the Consultant as a “change agent” and facilitator in transferring knowledge and skills instead of “doer” and report writer, even though a fair amount of doing will be perfomed as part of process;

Inception Report Preparation

48. Preparation of the inception report began approximately ten calendar days &r the Consultant’s mobilization. The report discussed briefly the Consultant’s understanding of the assignment, described the approach, methodology, and specific a s to be performed over the life of the project. The

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inception report also noted any changes in project status that have occurred since the preparation and distribution of the project TOR. It also noted key iques to be resolved and presented a detailed work plan for carrying out work under the TA. Certain modifications to the TOR were suggested, particularly in scheduling of the Consultant’s visits and various equipment purchases not agreed upon during contract negotiations. The Consultant’s work plan and schedule were developed to accommodate the changes noted.

Diagnostic Review (Situational Analysis)

49. The diagnostic review, or “situational analysis” (the terms are used synonymously) was essentially an in depth review and analysis of the operations, management practices and systems, policies and procedures, internal and external relationships of organizational units as related to the major project components. This exercise began during the Consultant’s first visit and was completed during the second, with the exception of certain items that were defmed until the final visit.

Assistance Needs Identified

50. The following were identified as technical assistance need as an outcome of the diagnostic review:

a

a

a

a

a

a

a

a

a

a

Conducting time allocation surveys in selected agencies, appropriate and timely oversight--monitoring, review, decision-making, and follow up. Two bimonthly progress reports were submitted in addition to the reporting described below.

An analysis of the current functions performed by the PSO;

The identification and definition of all the functions that the PSO should be able to perform in future in order to be able to carry-out the mandates as defined by Policy Statement 2000;

The identification of a new or revised PSO structure;

Reviewing proposed functions of the PSO including for each of them (a) goals; (b) primary and secondary level of responsibilities; (c) interaction with other functions.

Identifjnng the profiles and staff competencies that are needed by the PSO to cany out these functions; Preparing a set of job descriptions;

Reviewing the matrix of all staff currently employed in the PSO including all relevant information in summary, pertaining to their: Education background, Professional experience before joining PSO; Training and/or education currently pursued; Current job performed in the ofice;

Reviewing all the Job Descriptions of the staff currently employed by the PSO and the level at which these posts are classified;

Matching staff profiles and competencies required with the profiles and competencies currently available in the PSO;

Identifying the necessary redeployment of st& within the clusters of functions;


0 Identirjl training and retraining requirements;

0 Assist the Human Resources Planner prepare a comprehensive Human Resources Transformation Plan that would serve as a basis for decision-making by PSO managers.

51. The Consultant also saw a need for assistance and training in the basic methods and techniques of drafting organization structures, writing mission and goals statements, and preparing functional statements of responsibility. Assistance will also be needed in drafting elements of anticipated final work products into a Manual of Organization.

Tripartite Meetings

52. The project used Tripartite Meetings (TM) as one means of monitoring results, communicating progress, and giving direction to project efforts. During the project period, the Consultant team, as required by contract, provided periodic progress reports to PSO and the ADB. These progress reports were discussed at the Tripartite Meetings and, as necessary, appropriate action taken to make mid- course corrections needed to keep the project on track.

53. All major components of the Technical Assistance project were addressed at the Tripartite Committee meetings. Recommendations and suggestions were made on many aspects of the technical assistance. Additionally, specific observations and findings regarding departmental operations were shared with the Committee, including any findings that may affect the Consultant’s ability to provide project deliverables in terms of completeness, quality, scope, cost and timing.

Final Tripartite Meeting

54. The meeting was held on March 19,2001. The purpose of the Final Tripartite Meeting was to allow the Tripartite Committee Members to review any outstanding items, to conclude any outstanding business, and to pursue any agreement(s) regarding fiture aspects of project plans evolving from the technical assistance. In addition, all relevant information, recommendations arising from the Final Tripartite Meeting were identified and incorporated in the Final Report.

Draft Final and Final Report

55 . Following the review of the Draft Final Report and Final Tripartite Meetings, the Consultant incorporated all noteworthy comments, observations, and requests for corrections and modifications of the Draft Final report into the Final Report.

Unfulfaed Project Tasks

56. During the course of the technical assistance, a number of tasks were either set aside for one reason or another, or could not be completed during the period leading up to the drafting of the Draft Final Report. Some were linked to or dependent upon the completion of other related task(@ not yet completed. Those task not completed after the Final Tripartite Meeting are discussed below.

57. Following is a list of the major items falling into that category:

0 Comprehensive review of the organization and operations of the Ministry of Finance and Economic Planning. The Consultant was not able to reach an agreement regarding the scope of work and process for conducting the study.

Presentation to parliament and a wider community. This item was felt by PSO to be

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premature. That such an activity would require a community awareness program conducted after final review and considqration by the President and Cabinet and meeting of the Permanent Secretaries.

Presentation of the DFR to the President and Cabinet. 0

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JII. REVIEW AND ANALYSIS.0F PROJECT ACTIVITIES

58. The intent of this project was to provide a comprehensive approach to capacity building that would produce a structure, management, skills, and technologies necessary for PSO to provide the vision and leadership role in the administration of the Public Service. The Consultant feels that good progress was made in meeting this objective. The following sections provide a discussion of the observations, conclusions, analysis, and status of project components.

Project Environment

59. Before discussing the status of project components, it is appropriate to characterize the environment in which the project was undertaken. The project environment has been very conducive to carrying out the project work program fiom the beginning of the project. PSO has been supportive, optimistic and enthusiastic about the perceived benefits of the project leading to meaningful organizational change. Everyone has been extremely cooperative and helpful.

60. Most staff was perceived to be anxious to complete the process of organizational review that has been discussed in PSO for approximately six years. Many were conscious of the relative status of their respective individual situations as well as those of their operating units. Most were fearful of the real and perceived threats of the study to themselves and PSO. Despite these fears and perceptions, the project was able to move along without any major problems.

Project Activities and Accomplishments

61. The specifics of work components, accomplishments, and other activities are discussed in the sections that follow.

1. Review of Literature, Documentation, and Interviews

62. Relevant project documents were assembled by PSO officials and staff and were made available to the Consultant for review. Among the documents and materials reviewed are the following:

Kiribati Public Sector Review, " A Functional Review," Government of Kiribati; October 1993 Report, National Job Evaluation, National Job Evaluation Team, PSO/OB; 1998-1 999. Establishment Register and SWLis t 2000, Government of KiribatflSO, 1999 2000 Budget, Government of Kiribati, 7/12/99 National Condition of Service, Government of Kiribati, third edition; 1996 Constitution of the Republic of Kiribati, 1979 Policy Statement 2000 Various other memoranda, reports, and official documents

63. In addition, a review of secondary data and site visitations were undertaken. Interviews and discussion were conducted with key officials and management of various Ministries Relevant data, reports, studies, and other information available were collected, collated, and analyzed to enable the conduct of a rapid situational review and assessment, including a review of

Current policies, legal framework, planning as a whole, and that covering specific areas such as resource utilization and management;


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0 Roles, responsibilities, and capabilities of various ministries, state-owned enterprises, NGOs, and Community Organizer involved in the delivery of public services and their institutional capabilities and strengthening needs

64. A list of most of the persons contacted during this TA appears as Appendix 3. The appendix indicates that 62 persons were contacted formally and interviewed. Many others were contacted in an unofficial setting, but their names were not included on the list. The following summarizes contacts by Ministry or Wice: Wice of Beretitenti-3, MFEP-9, MOH-9, MESD-4, Judiciary-1, MICT-3, ME’IT-2, Attorney General-2, MLPG-1, and MILEC-1.

2. Policy Formulation

65. Based on the Consultant’s review, no single unit was identified as having overall responsibility for conducting the review and formulation of policy interventions. Similarly, there was no single unit assigned to provide technical backstopping to the hc t ion . Moreover, with respect to its assumed policy function, it was recommended the PSO abandon its “reaction-based” approach to policy formulation and adopt a more proactive and participative approach in addressing Public Service policy formulation.

66. A policy formulation process model was drafted for PSO’s review and consideration. This model appears as Appendix 4.

3. Management Information Systems Development

67. PSO management as one of the more important areas singled out Management Information System (MIS) for Technical Assistance. The ability of PSO to attain its short- and long-term objectives is a major function of PSO’s ability to assess its performance at every given stage of program implementation and service delivery. There is therefore a need to ensure that system of assessment is geared properly to answering management questions that fully allow the attainment of PSO’s objectives. That was the mission and expectation of this technical assistance element.

4. Analysis of Functional Areas of Responsibility

68. Following training and under the direction of the Consultant, The MSU conducted an analysis of the current futlctions performed by the PSO and prepared functional statements of responsibility for all key positions. These items were included in the PSO Organization and Operations Manual.

69. Additionally, the functions that PSO should be performing in the future were identified and ddined. These activities were in accordance with the mandates as specified by Policy Statement 2000.

5. New Organization Structure Developed and Recognized

70. A thorough review as conducted of the Public Service Ofice and a joint proposal for reorganization of the PSO was developed and submitted to the President and Cabinet for review and consideration. (This process and methodology of used in conducting this activity is described in considerable detail in the next section of the report.)

6. Job Descriptions Reviewed and Revised

71. All the PSO Job Descriptions were revieyed using PAM. Job descriptions were revised and ADB SMALL SCALE TECHNICAL ASSISTANCE


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reformatted and included in the Organization and Operations Manual. This process is discussed in more detail in Chapter VI, Job Classification and Pay,

7. PSO Office Networked

72. The PSO Office was Wired and all of the computers and peripherals were networked. This effort was performed by the MI0 with assistance from the project in terms of hardware and software. This permits the sharing of peripherals, intra-communications, and access to the Internet within the guidelines of the policy established by Cabinet.


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IV. R E m W OF THE PUBLIC SERVICE OFFICE ORGANIZATION STRUCTURE

73. The purpose of this section of the report is to‘ set forth findings and recommendations made regarding the restructuring of the Republic of Kiribati’s Public Service Office. The basic structural issues are evident. Only a minimal amount of fine-tuning of the recommendations was required.

74. The recommendations herein were arrived at through a process involving a series of independent and joint reviews of several organizational models. Various alternative structures were reviewed. The resulting recommendation represents a consensus achieved after applying universal organization principles, the results of a review of PSO’s current and future mission, and a general review of PSO operations. Several “new” functions recommended could be placed alternatively in other organization units outside PSO-such as creating similar units directly under the OEce of Te Beretitenti, Ministry of Finance and Economic Planning, or other establishing another independent agency of government The recommendation to place these fbnctions in PSO is the realization that much of what is proposed for this unit to handle is currently being done to a greater or lesser extent already by PSO.

Organization Review Process

75. As part of this phase of project activities, the Consultant and PSO project staff initiated a situational analysis study. Simply put, a situational analysis (which is synonymous with environmental scan, management audit, diagnostic survey, and the like) takes a “snapshot7’ of the organization at a specific point in time and serves as the basis for key decisions and choices regarding reorganization, making management improvements, and other actions related to organizational development.

76. A need for such a review was identified early in the project during the “Visioning and Scoping Workshop” conducted with PSO senior management. A series of other workshops were conducted for the purpose of reviewing the basic methods and techniques of conducting a situational analysis and position allocation study. These workshops were conducted to increase the knowledge and skills level of PSO staff and to ensure that The PSO’s counterpart personnel and the Consultant were applying the same methods and techniques in conducting the study components.

Results of the Review Process

77. The following is a discussion of preliminary observations and findings that have an impact on the organizational restructuring process. These findings will be revisited following the completion of the situational analysis study.

1. A Vision and Mission Statement

78. A vision statement should be inspirational in nature, serving as a guide for its reader describing the ultimate destination of an organization. For a public organization, a vision statement is a communication device that promotes a greater understanding between those who are served by the organization and those who have the responsibility for serving. It must be a public document if it is to foster a better understanding. In government, it should preferably be developed and endorsed by The PSO and the public as well. It guides both expectations and performance. If progress towards the realization of a vision statement can be effectively monitored and measured, it can provide one of the most effective mechanisms for accountability available to an organization.

79. Its mission and goals statement as described in its restructuring proposal dated October 2000, is ADB SMALL SCALE TECHNICAL ASSISTANCE

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reportedly “...to be [too] general and has ignor ed... the essential purpose of the Public Service Office.. . to provide HRM [human resource management] advice and services to the public service.” Such statements, when properly drafted, can be useful and serve as a guide to service. Successful drafiing of such statements requires an effective communication and validation process that involves both the PSO and other stakeholders in the public service. Such a process must be initiated as part of this review process. The existing vision and mission statement was revised and follows as Table 2.

80. A short customer satisfaction and employee job satisfaction questionnaires were prepared and administered. Some questions related to PSO’s mandate. A summary of the questionnaire results is presented later in this report.

81. Additionally, the communications and validation process among stakeholders and the community in general might be facilitated through the use of a mechanism such as the “GovernmentICitizen’s Contract” as shown in Table 3.

2. Organization Restructuring

82. The structure proposed in the October 2000 report was an attempt to reconfigure PSO within the context of perceived needs not validated by factual data and information. This proposed organization structure suffers from a number of shortcomings in both development process and content. Some of things proposed simply did not conform to internationally accepted and traditional organization structuring concepts. Some of those shortcomings included:

0 No clear, detailed statements of the functional responsibilities for many organizational units. Indeed, many organizational fhctional areas of responsibility are not recognized or acknowledged. Those paragraph summaries offered lack content or consistency of quality in fully describing the main duties, functions, and responsibilities of organizational units.

Singular accountability and responsibility for unit management was not explicitly recognized in the proposed organization. As an example, the Registry and support services functions shows responsibility graphically to four different units. The question is, “Who’s the boss?” This violates the principle that a unitlindividual should have only one boss

0 The proposal lacked organizational unity by separating similar responsibilities within the organization. There are economic and operational efficiencies to be gained from consolidating similar responsibilities under the same managers where both human and financial resources can be used more efFectively.

0 Distribution of workload among senior managers had not been considered adequately so that a more reasonable sharing of workload, appropriate to each level of management, could be achieved.

Inconsistent and improper labeling (organizational nomenclature) was used to describe the organization. In effect, two functional streams were relegated to “semi-autonomous” stahrs with the use of the label “center” which implies physical dislocation and independent facilities. The exception being that the term center may have been intended to establish a cost center. In that instance, you would be mixing coconuts--accounting terminology with breadfruit-organization nomenclature.


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TABLE 2

REPUBLIC OF KIRIBATI PUBLIC SERVICE OFFICE

MISSION STATEMENT

The Public Service Office, in assisting the Government of Kiribati achieve the national goals of promoting quality government services and housing to the citizens of Kiribati, will provide support in the development and execution of government policies and will provide technical assistance, advice, and training in those areas stipulated by the Government as its ministerial responsibilities, though developing responsive, effective policies and programs to address the critical issues of the Public Service and general government performance; by fimctioning as the lead administrative over-site agency in the public service; and by improving operational and managerial productivity, effectiveness, and efficiency of ministries and other agencies of government.

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TABLE 3

GOVERNMENT/CITIZEN'S CONTRACT FOR PUBLIC SERVICES

Qn agreement between the government and citizens of Kiribati regarding public services should incorporate i x key principles:

0 the setting and publication of standards of public service by each agency of the government; 0 the provision of information and openness about the service; 0 the offer of possible choices to citizens about different aspects of each service; 0 the requirement that service providers be courteous and helpful to their customers and the citizens at

large; 0 the assurance that each agency will ensure value for money for the public services it provides; and 0 the provision of mechanisms for correcting failure to meet standards and to respond to opportunities

to improve the quality of services delivery.

SUGGESTED IMPLEMENTATION MECHANISMS

There will be a need for every national government to appoint a minister of cabinet rank to monitor the implementation of the GCC nationally. All sub-national government agencies at regional and local levels should appoint an official government of equivalent status to monitor implementation at each level.

Effective institutional mechanisms for monitoring public service agencies must be established and provided with the requisite resources and autonomy to operate within and outside government executive agencies. In particular, inspectorate divisions are to be strengthened as well as institutions such as the Public Complaints or Ombudsman Commissions that provide opportunities for citizens to report infractions.

Periodic--monthly, quarterly and annual-reports will be required of every agency providing services to the public. These reports will be made widely available to citizens.

4. Performance of each agency should be linked to organizational and individual rewards. Awards could be made annually to the best performing agency by the Office of the Head of State, President or King, to give the award the appropriate national emphasis, but the same could be repeated at other levels of governance. Most importantly, the individual's compensation package within each organization should reflect the contribution each has made to the ability of the organization to attain its targets.

iource: UNECA, 1996, pp. 84-85, Aaizptedfim the source.

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The proposed organization, probably because of mislabeling, reflected possible duplication and overlap in areas of functional responsibility, e.g., human resources and administration.

83. On balance, it is fair to state that good intentions were evident in trying to develop the reorganization proposal. Unfortunately, it is also fair to state that the analysis underlying the reorganization and management controls of the study/review process were weak. However, all of these shortcomings can be fixed.

3. Management Culture

84. The following comments represent the Consultant’s initial analysis of organization’s management culture respecting organizational change. PSO management staff is:

Optimistic and enthusiastic about the perceived benefits of organizational change.

Anxious to complete the process of change that has been discussed for several years.

Uncertain of new roles and assignments resulting fiom organizational change (in some instances.)

Supportive of a more transparent and participatory decision-making process in future Organizational change.

Extremely cooperative and eager to learn by doing even though “doing it right” means considerable more effort.

Very conscious of the relative status of individuals and operating units in the organization.

In need of additional external expertise to facilitate orderly and effective organizational change in PSO.

In need of formalizing a more effective process for systems analysis and management collaboration in organization development and change.

Fearful of real and perceived threats to the PSO.

4. Policy Formulation

85. The scope of work called for “strengthening PSO’s capacity for policy analysis and development.” During the situational analysis, the consultant is to conduct a review and analysis of The PSO’s policy formulation process to determine the procedural steps involved and the relative effectiveness of the policy formulation process.

86. In general based on limited observations, it seems as though policy formulation is more ‘‘reaction- based” rather than “proactive” in addressing policy issues. Planning and research is, or at least should be, a major function of the PSO. The National Government looks to The PSO to provide direction and leadership in planning/policy formulation in organization development, personnel administration, career development, and human resources planning and development. In response to the National

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Government’s expectations and demands, it becomes more critical for PSO to expand its capabilities in policy planning, formulation and coordination. .

87. A fully functional policy planning and analysis unit will require competent personnel who are multidisciplinary in nature and who can handle analysis both in terms of efficacy and dciency--for instance, The PSO may need people who are well-trained and proficient in the use of systems, management and financial analysis principles, methods and techniques.

5. PSO Functional Areas of Responsibility

88. In the past, emphasis has been placed of the human resources aspects of the mission of the PSO. In reality the PSO does much more than just establishment administration and human resources development and planning. In fact, the unit’s areas of responsibility can best be characterized in the broader context of organization development (OD) as evidenced by its involvement in the development of policy, research and development in many areas in addition to those related to personnel administration. The unit addresses matters related to information technology, organization development, systems and operations analysis, and the like. It also performs in various research capacities when called upon by the President and Cabinet. Simply put, these functional areas of responsibility that are based on tradition and practice should be formally acknowledged and accounted for in PSO’s organization structure, mission and goals. Recommendations for restructuring PSO include the acknowledgement of these functions.

6. Management Services

89. Current operations in this functional area also extend beyond those duties and responsibilities officially recognized. Accordingly, this functional area was redrawn to recognize the several things that are not formally acknowledged as current duties and functional areas of responsibility-research and development, organization development, and management systems analysis and development, and possibly monitoring and evaluation.

90. Moreover, current operations are fairly limited to providing responses and services reactively. Many of the kinds of things that a Management Services Unit should be doing are necessarily proactive in nature, e.g., organizational development, systems research, development, and analysis. These activities and service are preventive in nature and should be performed in anticipation of problems, not after they surface.

91. One thing is clear, the functions of the unit are technical (as are the Human Resource Planning and Management Information units) and the unit should be staffed with competent technical personnel, not with rotating administrative cadre staff

7. Program Coordination, Monitoring and Evaluation

92. One area in which the Government of Kiribati sorely needs to recognize and fix the need for functional responsibility and establish accountability for the function is in the area of program coordination, monitoring and evaluation. From first-hand experience, the consultant has encountered situations where references were made to on-going and completed projects, but no information was available regarding it. Many of these references were related to projects that in some way addressed many of the issues currently under review.

93. Moreover, new consultants arrive weekly from various donor and lending agencies, but their purpose is limited to the Ministry to which they are assigned and the informdon, decisions made, and actions taken are not generally or widely shared. An external assistance coordination policy and


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procedure is needed. A central unit should be established, either within PSO or directly under the oflice of Te Beretitenti that is responsible for the approvdconcurrence on behalf of the office of Te Beretitenti, coordination, monitoring and evaluation of &I external technical assistance projects.

8. External Communications

94. The PSO’s networking and external communications are not well established and appear to be somewhat ineffective, given the response from the ministries visited early in the project. External communication linkages should be improved. It was suggested during the early meetings with various Ministries, that PSO share information through periodic meetings, conferences, workshops, and various forms of written communications. Direct written communications are best used when issues are narrowly directed at a specific agency or group. The PSO could produce newsletters, both in I-Kiribati and English, either bi-monthly or quarterly. This administrative function should be added to the administrative services unit.

9. Human Resources Development and Planning

95. This functional area offers potentially the most opportunity for consolidating services. Currently, three separate units-human resources planning and development, administration, and management services perform functions in this area.

96. A brief “scan” of the HRPD’s internal systems indicated the following needs:

1. To provided technical assistance and training in institutional policy formulation

2. To provide technical assistance and training for systems development for HRPD programs in cooperating institutions (e.g., TIT)

3. To enhance the HRPD management system(s)

4. To provide better documentation records and records management system

5 . To develop HRPD staff skills inventory and development system, strategic planning, and use of the “learning by doing” approach in providing training to its clients.

9. Management Information Systems

97. This is another functional area where organizational placement and expanded recognition of functional responsibility is needed, especially given the magnitude of current responsibilities and workload demands facing the Management Information OfTker (MIO.) One position in this unit is unfilled and transfer of a program officer is suggested. A complement of three persons should meet the current workload demands and other requirements. In order to give an murate assessment of stafF requirements, workload data and statistics are needed. These will have to be collected and generated over time. At present no such data is available.

98. In elevating this functional area of responsibility to division status, the specific functions for which it shall be responsible include:

0 Collection of relevant and necessary performance, operations and finance and administrative related reports through appropriate organizational units;

0 Basic integration and analysis of available information for user’s and management’s ADB SMALL SCALE TECHNICAL ASSISTANCE


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further analysis and interpretation;

Initiation and coordination, on an inter-agency level, of the development and updating of databanks for public service development.

0 Coordination of development and upgrading of PSO’s Information Systems Plan;

0 Providing assistance in the development and management of appropriate computerized systems in support of requirements of different operating and staff units of the PSO;

0 Development and management of the PSO LANNAN especially with respect to: - - Communication protocols and linkages - Operating Systems - Inter-0s interfaces both among internal units as well as among external Ministries

and agencies - Training of managers, technicians and other users at the different levels of operation and management

- Software management

Hardware and user stations setup and maintenance

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V. PROPOSED ORGANI&ATION STRUCTURE

99. The recommendations following are limited specifically to the restructuring of the Public Service O f f i e t h e expansion of functional areas of responsibility, consolidation of like functions, and appropriate placement of functions within the structure. While the issues of restructuring cannot be dealt with in a vacuum-that is without consideration of myriad external forces and factors-the scope of this technical assistance limits the study to PSO. Ideally, the exercises undertaken to develop the findings and recommendations-diagnostic review and position appraisals-should extend to the overall government. Treating only one or two organizational elements, will not necessarily improve the overall public service.

Principles of Organization

100. One of the project’s primary tasks was to conduct a review of The PSO’s organization structure. The Terms of Reference required that the existing structure be reviewed in terms of its adequacy based on universally accepted principles of organization theory and development. Accordingly, as part of the situational analysis. The Consultant conducted a review of the organization charts previously developed. The review and analysis was conducted using a traditional approach to organization structure modeling. Non-traditional approaches-program, matrix, and nuclear modeling--were not considered because the PSO operates in an organizational environment based on a traditional modeling system.

101. Traditional organization modeling is the most widely used form of modeling in government organizations. Some experimentation with non-traditional forms of modeling has occurred in government, but continues to be used most frequently in industrial, scientific, and business organizations. The Consultant felt that non-traditional modeling systems were not applicable in this particular undertaking.

102. The guiding principles used in the review of the PSO organization restructuring and reorganization efforts included:

1. Unity of Command 2. Hierarchical Relationships 3. Grouping of Like Functions-Work uniformity 4. Authority Commensurate With Responsibility 5. Lines of Authority and Responsibility 6. Span of Control (usually limited to no more than seven sub-units) 7. Reporting Relationships 8. Communications (formal, Informal, Internal, External) 9. Equitable distribution of Work 10. Organization by time of day (work coverage by hours, shifts, days, etc.) 1 1. Organization by geographical requirements (regions, districts, etc.)

103. Each of these items must be considered, regardless of the kind of organization modeling used, i.e., traditional hierarchy, holistic management, matrix management, etc. The restructuring recommendations presented later in this report are based on and adhere to the principles of organization cited above.


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structural differences between the PSO recommended chart and that of the consultant. In addition, several individual consultations were held in order to clarify issues related to organization principles. Chart 1, depicting a macro level structure, represents the agreement reached by the working group. It was submitted as a joint recommendation to Cabinet. As of this writing the document is still under review.

Recommendations

109. The following recommendations were submitted for review and consideration:

1. The organization as depicted in Chart 1 was recommended for consideration and adoption. PSO staff is currently preparing functional statements of responsibility for each major organization unit and sub-unit. Job descriptions for each position are also being updated and reformatted. These items will be assembled into an Organization Manual. The Consultant with templates and instructions for replicating manual contents prepared a “mock up” version of the Organization and Operations Manual.

2. It is highly recommended that a formal presentation of this report and the recommendations offered be discussed with Te Beretitenti, the Cabinet, and PSO senior management stafT. This will allow for the clarification of points in question and permit an updating on the status of the other work elements on-going that may impact the final recommendations.

3. We also recommend the adoption of the standard nomenclature presented and that PSO assist all government agencies modie their respective organizations using the new labels identified.


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CHART 1 PROPOSED ORGANIZATION STRUCTURE

SHOWING FUNCTIONAL AREAS OF RESPONSIBILITY

(December 2000)

RTBLIC SERVICE OFFICE

Permanent Secretary Boards and C o d t e e s

Director

I I

Personal Assistant

Admhistntive Services Bureau 1 Deputy Secmtuy

I I I I I I I i i . - - - - - - - I ~ ~ I I i . . - . . . ; ’ ~ ~ t ; _ l Mans ement Infarmath S emsDivision FmancnISvcs Division General Svcr Division Re u & Records Diviion Pro rmsCoord Division

Human Resource Planning Unit Establiment Admb. Section

H u n n Resnucea Dev. Section h Organbation Dev. Section

Training Section I= Owlrsepr Education Section H

M n a p e e d Systems Aduit Section

q Recruitment Section b Research and Development Section b

Computer Maintenance Section

MIS Technical AssMance Section Accounting Section Tranrport Section Mail Svca Section

S0fhrm-e Devdopmen! Section

LANMrAN System Adminirtntion Pmject Dncumentatioo Library b

28

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VI. JOB CLASSIFICATION A N D COMPENSATION

110. The PSO requested the Consultant assist it with reviewing and updating its National Job Evaluation Study and to make recommendations for establishing internal equity between the various job classifications within PSO. The scope of the review encompassed:

Reviewing the relative merits of the current job evaluation study results and methods employed.

9 Internal evaluations and point factoring of all PSO job classifications using the Position Appraisal M d o d (PAM) of job evaluation.

Assessing PSO’s comparative market position with respect to compensation, relative to similar jurisdictions in the South Pacific region.

Reviewing and preparing appropriate policy recommendations about compensation and benefits for technical and administrative staffpositions.

Methodology

11 1. The following outlines the process introduced to the core management staff of PSO. It is the model employed to undertake the review of PSO’s job descriptions and classification system. PSO st& under the guidance and review of the Consultant carried out the study. This process is recommended for future reviews of classification and compensation studies within other government Ministries and agencies.

1 12. It is noteworthy to mention, that the PSO staff had nwex before been introduced to such a process and was surprised at the level of work involved in carrying in out. They now appreciate, however, the need and value of employing such a process and are advocates of its use.

1. Study Orientation and Start-up

11 3. Orientation Meetings: At the start of the project the Consultant conducted study orientation meetings with the PSO’s senior management team and with employees. All employees were invited to attend the meeting. The Consultant outlined the purpose of the study and discussed the study approach, and responded to questions.

1 14. Review of Background Materials: As another initial step of the study, the Consultant obtained and reviewed pertinent background materials such as materials on the PSO’s various programs and operations; existing pay plans and job descriptions, annual reports, organization charts and other related information.

1 15. Data Gathering: Compa-ratio analysis was performed to gauge the current position of jobs and occupational groups within the pay ranges and rates of progression through the pay plan. Compa- ratio analysis is one means of assessing the structure of a pay plan with respect to how close jobs are to topping out in a pay range as well as the existence of possible pay compression problems between related jobs in an occupational series or between supervisors and subordinates.

2. On-Site Employee and Supervisor Job Interviews

116. Review of Job Descriptions: the Consultant and Management Services Unit team reviewed ADB SMALL SCALE TECHNICAL ASSISTANCE

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each job description in advance of conducting on-site interviews with employees and managers. With few exceptions, we found the job descriptions to be current regarding job content, essential functions, necessary knowledge, abilities and skills, format, and education and experience requirements. For instances where substantive change in job duties has occurred since the 1997 study, employees provided updated job content for use in evaluating the job. often this additional job content was provided when a position incumbent was interviewed.

117. Employee and Manager Interviews: The Consultant conducted job interviews with nearly lOO?? of the PSO’s workforce. The purpose of the interviews was twofold: 1.) To ensure the consultant had accurate job knowledge for conducting the labor market survey and 2.) To give employees, supervisors and department heads the opportunity to raise recruitment, retention, morale, and other compensation concerns.

3. Evaluation of Internal Alignment

118. M U staff and the Consultant analyzed and point-factored each job description using the PAM system. The Position Appraisal Method allows the PSO to systematically value work in relation to other work being carried out in the organization. Seven (7) factors were identified and applied to all class descriptions for this study. These factors are as follows:

Factors

1. Knowledge 2. Supervision exercidscope of responsibility 3. 4. Problem solving and complexity/guidelines 5. Application of authority 6. Purpose and nature of work contacts 7. Physical and sensory demands and hazards

Scope and effect of decisions and actions

1 19. The factoring requires a systematic comparison of job elements to the factors, not comparison of different jobs to each other. The Position Appraisal Method does not evaluate an individual employee’s work performance. It only measures work officially assigned and being performed. The efforts of an employee, i.e., performance, can affect the classification and its evaluation or ranking only when those efforts result in the addition or deletion of duties and responsibilities.

120. Each class was rated on each factor by selecting the most descriptive degree. Then the point values for all factors were totaled, giving each classification a numeric value. The total point values for all of the classes provide a relative ranking, or relative internal worth, for each classification. See Table 4, for the internal alignment of jobs (PAM Point-Factoring) for PSO.

TABLE 4 Relative Values of Factors

Factor Weighting Mas Points Totals

1. Knowledge

3. Effect on Decision Making 4. Roblemsolving 5. Application of Authority 6. Work Cmtacts (PurDOse aad Nature)

2. scopeofResponsibility 22 18 12 15 18 10

9 11 7 10 7 5

198 198 84 150 126 50

7. PhysicayEwiro~-ntalDemands d 4 a 100 826

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Classification of Posts

121. The current classification system has a total of 16 main groupings. The number of groupings is considered to be quite large. Additionally, several of the classifications are related and could be consolidated. The original classification groupings are shown below with a strikeout through the groups that could be consolidated. Recommendations are indicated at the end of the strikeout. The end result is that the groupings are reduced to twelve.

Accounting & Related Occupational Group (AC) Administrative & Related Occupational Group (AD) Aviation and Marine Services Occupational Group (AM) Engineering & Related Occupational Group (EN) Economist & Related Occupational Group (EC)

Immigration & Customs Occupational Group (IC) Information & Data Analysis Related Occupational Group (ID) Legal Officers & Related Occupational Group (LG) Medical Professional Occupational Group ( M P S )

Land, Sea Resources & Environment Occupational Group (LSE)

Police & Prison Occupational Group (PP) Education Professional Occupational Group (ED)

Consolidate w/AD

Consolidate w/AM

Consolidate w/MPS Consolidate WIMPS

__ __ ~ _ _ _ ~ ~ ~ ~ _ _

Changes in Job Titles and Concepts

Current Job Descriptions

122. The PSO’s job descriptions were last updated in 1996. A review of the descriptions found them to generally reflect current job content. The formatting of the documents was non-uniform and did not cover all of the factors upon which the system is based. Several of the job titles were found to be non-reflective of the work performed by incumbents in the position. Certain recommendations were made in terms of re-titling several positions, to create new positions to cover technical operations, and to abolish certain other positions. These recommendations include:

Current Title Recommended Title

Public Service Inspector Human Resource Planner

Director of Organization Development (new) Director, Management Services Director, Human Resources Development Director, Management Information Services Ass? Director, Management Services Ass’t Director, HRD MIS Technician (new) HRD Specialist (nau) Management Specialist (new)

Management Information Of3cer Ass’t Secrdary, MSU Ass’t Secretary, HRP


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123. Positions not recommended for technical specialization would keep their current titles.

124. A h e w o r k and procedures for installing and maintaining a classification plan is included in Appendix 5.

FAY PLAN

125. A basic element in any personnel system is adequate and equitable employee compensation for work performed. The classification plan linked to the pay plan ensures fair and consistent pay for an organization. The classification plan groups jobs into classifications based upon the level of dificulty and responsibility assigned. Point-factoring job descriptions with the Position Appraisal Method (PAM) results in a hierarchical ranking of jobs. This process is done without considering the incumbent’s present salary or performance on the job.

126. After job descriptions have been point factored, the next step is to assign each job category to a pay range. This step assures consistent salary administration of the job descriptions.

127. All of the pay ranges, together with the pay policies, are referred to as the pay plan. The purpose of a pay plan is to enable the PSO to recruit, retain, and motivate employees, and to be competitive with the marketplace, e.g., assign jobs to pay ranges, which compare favorably with those of other employers in the appropriate labor markets.

128. The labor market is defined as the geographical area in which an employer can reasonably be expected to compete for personnel. The “sum of the parts’’ best describes the influence the labor market has on wages, salaries, and benefits.

Results of Salary Survey

129. The salary survey began in November 2000 with a request to selected countries in the region to provide their respective salary plans. The first of these requests was answered March 14 with others following during that week. Given the timeframe and questions surrounding the plans received, a complete review and comparison of salaries, plan structure, and other features could not be accomplished. The initial observations fiom the review to date are summarized below:

0 All plans have multi-step plans ranging fiom three to 20, possibly 36 in the in the case of Samoa Samoa has steps within steps, which appear to amount to 36 levels of compensation for a single grade. This needs to be confirmed. In any even, all plans submitted use a uniform approach to salary levels in terms of the number of steps. The Republic of Kiribati should adopt such an approach to its plan.

0 Two jurisdictions use 4% differentials between steps and the other uses a 3% differential. Kiribati’s differential varies grade-to-grade and level-to-level. There should be a realignment of salaries using a uniformed approach as is being done in other jurisdictions.

0 The plans submitted provided for additional compensation for educational attainment as well as for longevity. The Kiribati plan should emulate this approach.

0 Benefits vary fiom jurisdiction to jurisdiction. Most appear to provide similar benefits as Kiribati.

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The Consultant observed significant problems with all plans submitted. Some were presented in a format that made analysis difficult. All appeared to violate universally accepted principles regarding pay plan development.

130. There is an obvious need for the Republic of Kiribati to conduct a comprehensive review of its salary and benefits plan. Appendix 6 presents a framework and procedures for installing and maintaining a pay plan based on the PAM system.


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MI. PERFORMANCE MANGEMENT SYSTEM (PMS)

131. This section of the report sets forth tho& elements for consideration in developing a pcnfomrance managerncnt system. A framework has been designed and is recommended for government consideration, if and when, it decides to establish a performance management system. A framework for establishing and institutionalising a performance measurement system using management audits is included as Appendix 7.

Purpose

132. The concerns with government efficiency and the shrinking monetary resources are stimulating governments to improve the performance of their programs. Hopefblly, this project provides a pathway for addressing these challenges. The general purpose of the proposed Performance Measurement System is to:

0 Improve the confidence of the people in the capability of governments, by systematically holding them accountable for achieving service delivery and program results.

0 To initiate program performance reform by requiring the creation of strategic plans with program goals, measuring program performance against those goals, and reporting publicly on progress.

To improve government program effectiveness and public accountability by promoting a new focus on: results, service quality, and customer or constituent satisfaction.

0 To help government managers improve service delivery by: requiring the development of plans to meet program objectives, providing information about program results and service quality.

0 To improve decision-making by providing more objective information on: achieving statutory objectives, the relative effectiveness of programs and spending.

0 To improve the internal management of government

Principles of Good Governance

133. In addition to observing the principles of organization cited above, the basic principles of good governance should also be observed. Good governance is based on and judged by the application of the following basic principles. In order for a government to demonstrate “good governance” it must ensure in both practice and principle that, at a minimum, its systems and processes are endowed with:

Transparency. Availability of reliable information (the provision of appropriate, necessary and relevant information to stakeholders when needed and upon demand)

0 Participatory Decision Making. Partnerships with stakeholders. Provision of a voice for all stakeholders in the formal and informal decision-making processes.

0 Accountability. Decision-makers are answerable for their actions and violators penalized accordingly.


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1.

2.

3.

0 Leadership. Provision of clear and e e g i c long-term vision. Vision and mission are owned by all and are arrived at consensually and in a participatory manner.

Capadty Good Governance Indicators Institutional Capacity 1. Accountability

2. Transparency 3. Adaptability 4. Judicial Independence

Technical Capacity 1. Perspective planning and projecting future investment

2. Needs 2. Management of services and infrastructure 3. Financial management and accounting practice

2. Personnel policy 3. Flexible and decentralized decision-making 4. Performance evaluation

Administrative Capacity 1. Grievance redress system

0 General Organization and Management. Existence of clear organization relationships and management institutions and processes that are characterized by the absence of a minimum of red tape.

0 Intergovernmental Relations, i.e., vertical and horizontal coordination and information sharing. There must be a presence of coordinative relationships (from simple sharing of information to activity sharing to clear delineation of hierarchy between and among national and local institutions, or among co-equal levels of government.)

0 Rule of Law, Controlling legal systems must in place and govern all government processes. A stable and legal framework must be fairly and impartially enforced.

0 Continuity and Uniformity in the implementation of programs. Government processes must be predictable and sustainable.

0 Effective, Responsive, Provision of Basic Services. Basic services should be placed on giving priority to meeting the needs of the poor.

Governance Criteria

134. Many institutions and individuals have initiated efforts to develop indicators of governance. Dinesh Mehta in ‘‘Urban Governance: Lessons from Best Practices” traces the concepts of governance and reviews the various characteristics of “good governance.” He discusses the lessons leamed from some best practices and provides a strategy for encouraging a new mode of partnership. Mehta presents the following matrix on Good Governance Indicators Based on Capacity which has been adapted from Grindle and Hildebrand (1 994) and Razon Abad (1 997):

Figure 1

MEFITA’S MATRIX ON GOOD GOVERNANCIC INDICATORS


4. Political Capacity 1. Articulation of local needs in the context of organiqtional capacity

2. Mechanism for participation of stakeholders 3. Statelocal relations in policy formulations and fiscal

transfers

Performance Criteria, Measures, Indicators, and Performance Management

135. The effort to develop performance criteria has largely been related to that of performance indicators and performance measures. As used here, the term performance criteria is used interchangeably (albeit loosely) with performance indicator and performance measures but within the broader context ofper$onnance management.

136. The performance management process can be broken down into three specific steps:

1. Performing a performance plan;

2. Managing performance; and

3. Conducting performance appraisals.

4. It is possible to apply governance performance criteria in each of these steps.

Towards the Development of Governance Performance Criteria

137. The development of governance performance criteria takes on a two-stage process. The first step involves the identification of appropriate governance performance criteria. The second step focuses on governance performance. It should be noted that the good governance criteria are further subdivided into “process” criteria and “target” criteria. This is part of a general effort to avoid confusing “means” fiom “ends.”

1. Process Criteria

0 Transparency. The provision of appropriate, necessary and relevant information to stakeholders when needed and upon demand.

Participatory. Provision of a voice of all stakeholders in the formal and informal decision-making processes

0 Leadership. Provision of clear and strategic long-term vision. Vision and mission for the community arrived at in a participatory and consensual manner.

0 General Management. Existence of clear organization and management institutions and processes characterized by absence (or minimal) red tape.

Intergovernmental Relations (Vertical and horizontal, clustering). Presence of coordinative relationships (may simply be in terms of sharing of information to clear delineation of hierarchy) between and among national and local institutions, or among co-equal levels of local government.

0 Continuity. Programs and projects of previous administrations continue to be


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implemented (after proper evaluation)

a Availability of Information. Records, resolutions, minutes of meetings, etc., appropriately filed, accessible, easily retrieved and made available to stakeholders.

0 Use of computer technology in information management.

2. Target Criteria

Provision of Basic Services

Eficiency. In terms of costs, service delivery mechanisms and processes are delivered Cost-eEciently making best use of resources.

Effectiveness and Responsiveness.

Predictability. Any change in government or administration will not disrupt the delivery of services or the continuity of programs and projects implemented.

Accountability. Decision-makers are answerable for their actions and violators are punished/penalized accordingly.

Rule of Law. Stable legal fiamework that is fairly and impartially enforced.

Preference for the Poor. Manifest bias to address the pervading problem of poverty in the community

Sustainability in the Implementation of Programs. Innovative programs and projects in the community continue to be implemented even when donor support dries up, or when there are changes in administration due to manifest ownership by the stakeholders.

138. It is recognized that towards the general objecti= of making the above criteria simpler and easier to administer, a number of the above can be collapsed and integrated further. For instance, the continuity, sustainability and predictability may be considered as a group if necessary. The same is true for efficiency, effectiveness and provision of basic services. Breaking them down was simply an attempt to further refine them.

Government Reinvention

139. Numerous reinvention initiatives are needed to achieve the above aims. In so doing it will be necessary to develop service standards, performance measures, supporting innovative approaches to Service delivery, and fostering national-local partnerships.

Organization and Operations Manual

140. Specific plan requirements, performance reporting, and other key principles upon which the system is based appears in the form of a generic operations manual. The contents of the manual are intended to accomplish the following:

Assist governments operate in a more businesslike manner with clear accountability

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to taxpayers

a Improve program effectiveness and kuntabi l i ty by focusing on results, service quality, and constituent satisfaction.

Develop strong leadership from top and line managers across all levels of government.

Ensure the active participation of all development partners, stakeholders and constituencies.

Introduce creative problem solving to develop new ways of doing business and to void creation of new information bureaucracies.

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VIIL ANALYSIS OF COMMUNITY ATTITUDE AND EMPLOYEE SATISFACTION QUESTIONNAIRE RESULTS

141. The section of the report following presents an analysis and interpretation of questionnaire responses received from various respondents to two surveys conducted during the period February 21 - 27, 2001. The first survey questionnaire was randomly executed in public places by trained interviewers who selected people by choice and on the basis of their (persons contacted) willingness to participate. The community attitude survey sought to obtain the level of knowledge and satisfaction of the general public with the Public Service Wice and its services. The survey also asked respondents about their satisfaction with services from other ministries and agencies of government.

142. The second survey questionnaire was an employee job satisfaction survey. All staff of the Public Service office available on the day the survey was executed, February 26,2001, was included in the survey exercise. This survey sought to obtain attitudes, opinions, and beliefs of employees regarding:

1. Working conditions-equipment and facilities 2. Quality of supervision 3. Fairness and equity in dispensing discipline 4. Current workload demands 5 . Salary and benefits 6. Employee participation in decision-making

143. Both surveys are analyzed and discussed separately in this section. Analyses of individual and group responses are shown where applicable. Copies of questionnaires and summary results for each s w e y are attached hereto as Appendix 8.

Methodology

144. Both surveys followed generally the principles of social research methods and techniques. Neither survey, however, was intended to be a “scholarly work,” nor were efforts taken to randomly select participants on a scientific basis. Both questionnaires were conducted anonymously to encourage participation. The results were intended to be “generally” indicative of the thinking of members of the community with respect to the community attitude survey and to obtain a representative response from employees with respect to their current employment situation.

Analysis of the Community Attitude Survey Results

145. This survey comprised two parts: Demographic information and specific questions regarding the Public Service Oflice, its services, and the services of other ministries. The demographics part of the questionnaire is discussed first. This information gives the reader background on the diversity of those persons participating in the survey.

146. As part of the preparation in conducting the survey, three local college level students were recruited on a “for pay” basis to assist in carrying out the interviews. This was necessary to insure the interviews could be conducted in Kiribati. The interviewers received a general orientation regarding survey research, reviewed the questionnaire, classroom instruction on how to conduct interviews including role playmg, and they were given a pilot testing period at which time each interviewer was observed and their technique evaluated. Upon-succesfil completion of the training, each interviewer


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went to the field, conducted interviews, and recorded the responses to the questionnaire. Following the field exercise, each interviewer reviewed their individual work efforts with the Consultant and corrected any errors or omissions.

Demographics

147. Every attempt was made to get a “balanced” group of respondents. That is the interviewers were tasked, to the extent possible, with selecting equal representation from the various categories. The survey included 202 respondents. A total or nine persons were recorded as “declined to participate.” The body of persons participating in the survey was composed as follows:

Gender. Ofthe total pool of respondents, 44.5% were male and 55 % were female.

Age Groups. Six age groupings were used: 18-25, 26-35, 36-45,46-55, 56-65, and over 65. Ofthe 202 persons interviewed, five persons declined to answer this question. The percentages for each age group follow: 18-25--38%, 26-35--24%, 36-45--17%, 46-55-13%--56-65--5%, and Over 65- -3%.

Location of Residence. Responses to this question were grouped into three categories: Buota to Taborio, Ambo to Bairiki, and Betio. Sixteen persons (nearly 8% of respondent pool) declined to answer this question. A break down of the responses is as follows: Buota-Taborio--50%, Ambo- Bairiki--33%, Betio--17%.

Marital Status. This question merely identified the individual respondent’s marital status. Twelve persons (6%) declined to answer this question. Of those responding, 56% were married and 44% single.

Education. This question was broken into four categories: primary, high school, college degree, and none. Only three persons declined to respond to this question and one response was discarded as “unintelligible.” Primary--1 6%, High School--78%, College Degree--O%, No Education--6%.

The results follow:

Income Range. This question was divided into four categories or groupings: Under $5,000, $5000-$9,999, $10,000-$15,000, and Over $15,000. It is not surprising that this particular question was the least answered given the personal nature of the question. Over 41% of the respondents declined to answer this question. Of those responding, the break down is as follows: Under $5,000-- 67%, $5,000-$9,999--24%, $1 0,000-$15,000--6%, Over $1 5,000--3%.

‘

Occupation. This question was broken into three categories: Government Employee, Private Sector, and None. Only 5 persons declined to answer this question. The results are as follows: Govemment--52.8%, Private Sector--32.5%, none--14.7%.

Attitudes and Opinions Regarding PSO and Ministry Services

148. The second part of the survey, focused on generaiing responses regarding knowledge of PSO, satisfaction with its services, and the services of other government ministries. Ten questions were asked. A summary and analysis of the questionnaire responses follows. The results are indicated listed according to each question number.


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were generally satisfied with the level of consultation with management

154. All things considered, the majority of employees feel that the Public Service M i c e (and government, in general) is a good place to work. Sixty-two percent of the employees surveyed indicated that they would recommend government employment to a fiiend.

Conclusions and Recommendations

155. The following are actions that PSO should consider in response to the problems and issues raised by both surveys.

156. Community Attitude Survey:

a. PSO should prepare a community awareness and information dissemination program. The program should include at a minimum the preparation of brochures that identifjl what PSO is and the services it provides. PSO could possibly prepare and broadcast radio sound bites and similar type public relations and community outreach programs.

b. PSO obviously needs to set up a new employee orientation program that includes sessions on telephone courtesy, methods and techniques of working with the public, and basic services PSO provides.

c. PSO should establish a system for receiving, recording, and following up on citizen’s complaints. Each complaint should be taken to a satisfactory resolutiodconclusion and a report generated outlining what actions were taken and the end results achieved. A quarterly report of all complaints and actions taken should be prepared and submitted to the Permanent Secretaq and Secretary to Cabinet.

157. Employee Job Satisfaction Survey:

a The Management Services Unit should initiate a review of PSO policies and procedures related to the process of supervisory decision-making in making work assignments and other actions that might lead to employee dissatisfaction and charges of favoritism and inconsistent treatment.

b. Also, policies and procedures related to the maintenance and distribution of supplies and equipment should be reviewed in an effort to reduce wastage.

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M. LESSONS LEARNED

158. Everyone involved in the technical assistance‘leamed many lessons. The project was truly a learning experience. However, there are a number of significant lessons that are notable and merit mention here because.of their impact on the project and their possible applicability to future projects of this kind. A brief discussion of some of the more important lessons learned follows.

Organizational Change

159. One of the most important lessons learned by the participants of this project is that change often takes place slowly and that the process is more complicated that it may appear. Satistjlng the divergent vested interests of the many organizational units and individuals often requires additional time not planned, delicate negotiations, constant reassurance that risks are limited, and the development of trust and respect. We have found that even the best laid plans and simplistic solutions are difficult to accomplish or implement because of the behavioral factors involved in the [change] process.

160. Despite the serious commitment to make meaninel organizational change within PSO, the behavioral aspects of the process, as well as routine operational requirements, have tended to “slow the wheels of progress” sometimes to a ‘‘stand still.” The only way one can deal with these kinds of issues is to work through them. There are no models or panaceas for dealing with organizational behavior. Each organizational setting is unique and must be dealt with accordingly.

161. Notwithstanding the project’s slow pace at times, the project realized considerable progress and success in terms of transferring skills for conducting the kinds of processes the PSO must undertake in the future to sustain the TA effort, preparing specific recommendations for organization restructuring, and improving internal and external communications, to mention but a few areas of progress.


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X. PUBLIC SERVICE LEADERSW: A VISION OF THE FUTURE

162. The Consultant feels that the following are essential to the fbture institutional and capacity building efforts within PSO, as well as for maintaining the momentum established under the current technical assistance project. The Consultant is convinced that the desire and institutional will to continue, “along the path taken” as part of this TA is strong within PSO. The Consultant feels, however, that additional knowledge and skills are needed at various levels and in selected positions in order to ensure accomplishment of the future tasks awaiting PSO. Also, a clear commitment is need from the President and Cabinet regarding the direction to be taken regarding Public Service Reform vs. Public Service Maintenance.

Vision, Mmion and Goals for the Future

163. The development and maintenance of an organization vision, mission, and goals statement for the fbture is not a static process. All emanate from a highly dynamic process affected by circumstances, events, and external influences, many beyond the control of PSO. Nevertheless, PSO can, through the continued application of the processes used, keep pace with the need for public service change.

Future Organization Development

164. The organizational development and change management process has really just begun within PSO. Building a culture of strategic thinking, collaborating among internal actors and partners in the delivery of public services, and coping with organizational stress brought about by rapid change merely constitute a good beginning.

165. It is obvious that additional work is necessary in further developing the institutional and individual skills that are still lacking. The development process and capacity building will require both short and long-term interventions, i.e., a combination of training, on-the-job training, and educational programs, that latter being long-term.

166. The fbture and sustainability of this technical assistance effort depends largely on the following actions being taken:

1. Enhancing the team buildmg process for all the PSO stakeholders. PSO has to institutionalize a teamwork culture and learn how to manage the collaborative process. It should also build an environment where mutual trust and respect among partners shall bind all its transactions.

2. Building a capability to manage its network of partnerships.

3. Further i n t d strengthening in problem solving is needed: Long-term organizational development efforts should focus on the development of mechanisms for coping with internal stress.

4. Experimenting with t r m s f d g the change process technology within other government bureaucracies. The experience of PSO is ripe for technology transfer within the Government of the Kiribati. The approaches, methods and tools and


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the “leaning by doing” fiom this project represent a rich reservoir of knowledge fiom which the GOK can lean. Further facilitation, monitoring, and documentation of this learning are vital to carry out such a program successfully.

5. Expand internal Learning: The change process has been introduced to a small segment of upper and middle management with very little participation fiom the general rank and file. These staff should also be involved in problem solving, team building, and foremost, in assisting in charting the direction of PSO. This is an area that needs to be reinforced.

6. Organizational development and change management, policy and program development linkages. This multifaceted aspect of organization life and development should be linked and synchronized.

The Future Role of PSO

167. The role of PSO in the public service can be viewed from two perspectives:

As one stakeholder in the public service and as the agency mandated by the government to act as the policv and reaulatolv body for public service. As one among many stakeholders in the public service, the PSO has the following significant roles: a) as the lead agency and authority on public service (policies, plans, programs, statistics); b) as the monitor and evaluator of public service policies; and, c) as an advocate for public service concerns.

0 On the other hand, fiom the perspective of being the agency mandated to act as the policy and regulatory body, its major task is to establish the processes and mechanisms that enable those in the public service to perfom their respective roles as: basic service providers, program implementers, or producers of goods and services.

168. As currently mandated and as its role is envisioned in the future, the PSO will take a lead role in the following:

Leader in Policv/Plan Formulation. The PSO would ensure a fully participative process of policy development and plan formulation. In order to establish these processes and procedures, PSO will establish a mechanism(s) for an inter-active and participatory policy process. A multi-sectoral public service policy forum composed of key government Ministries and agencies will be created. Accordingly, PSO’s organizational structure will be clearly defined so as to initiate, guide, and sustain the planning and policy process.

Technical Resource Aszency. As a lead agency and authority on the public service, the PSO will provide data and information of interest to the Ofice of Te Beretitenti, the Cabinet, Ministries, other agencies of government, and interested persons, groups and organizations. Pertinent information on the public service will be generated regularly by the PSO through its Management Services Division. Moreover, the PSO as a lead agency will provide technical assistance and program direction to Ministries and other government agencies.

0 Innovator of New Stmteaies. PSO will endeavor to innovate and test new strategies to

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improve the effectiveness of public service programs. These schemes will be pilot-tested in selected agencies of government and.the results of which will be produced in writing with specific recommendations for the implementation of relevant structural and operational changes. New approaches in the delivery of basic services, management, and operational procedures will also be considered.

Catalvst and Advocate. The PSO will act as a catalyst in public discussions on public senice issues. It will also act as advocate for policy positions relative to perceived inequities within the public sector.

Pmmm Coodination, Monitoring and Evaluation. The PSO will provide overall government coordination of external aid and technical assistance for the myriad lending and donor agencies assisting Kiribati. The PSO will ensure that the individual progrdproject activities are in keeping with the overall goals and objectives of the public service as outlined in the National Development Strategy, annual budgets, individual ministry performance targets, and the like.

Management Infinnation &stems. The PSO will also take the lead role in developing and implementing government-wide management information systems, including the development of standard database applications and installation of hardware and software. The PSO will also be responsible for the design and coordination of the installation of govemment-wide local and wide area networks ( L A N s and WANs.)

Project Sustainability-Maintaining Momentum

169. The question (and concern about attendant problems related thereto) of what happens in terms of maintaining project momentum once the Consultant closes his office doors. A number of project counterparts have expressed their concern about the following, which they feel, should be addressed in order to maintain project momentum and sustainability.

170. First, there is a general concern about the processes used being able to withstand certain organizational influences that are counter to the full participative management process and technical review. They fear that the “temptation” of some managers and administrators to maintain an expedient, autocratic management style may be an insurmountable hurdle to clear without continued outside facilitation and development support until processes are fully developed and institutionalized.

17 1. Second, there is a perception that without external review and “stimulus,” follow-up in terms of individual training and development needs might be left to chance. Further advice, facilitation, and technical assistance are possibly needed in this area

172. Third, there is c o n m about what will happen to the initiatives started, but not completed as well as those not yet started. There appears to be a sincere desire to proceed with initiating and completing all of the planned project components.

173. The consultant feels that the basic framework and necessary knowledge and technical skills are present at key levels of PSO to sustain program initiatives. This assumes, however, that the leadership and “institutional will” is likely to permit continuation of the processes installed.

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Future Risks and Countermeasures

174. There are still some risks and challenges facing PSO in the months and years ahead. Time has been given to implementing a number of capacity building initiatives, however, much work still remains to be done. Some of the objectives and tasks were fully met or completed, while others were just started. Others must follow this first big step if the change and momentum begun are to continue into the future.

175. Several challenges face PSO in completing what this project has begun. The following are some of the specific risks confronting PSO with respect to this project effort.

0 Staff resistance to change is always a potential risk. However, such resistance can be reduced through efforts to communicate effectively the nature and purpose of the change(s) as well as the likely impact of such changes on the individual status of employees.

0 Sustainability of TA Project efforts may be at risk of the lack of adequate funding to sustain program efforts initiated. Such things as computer hardware and software upgrades and long-term education and training programs are likely to have a cash shortfall.

Recommendations for Future Action

176. The following are offered as recommendation for future action by PSO in sustaining project efforts and further enhancing its institutional capacity. It is recommended that:

0 PSO complete the preparation and maintenance of the Organization Manual in order to permanently record significant information about PSO for future use and for management control

0 Continued emphasis should be placed on management training for all management staff in area of leadership skills, delegation and decision-making, organizational principles, and team building. Also, that more emphasis be placed on increasing technical capabilities in the area of operations research, organization development, systems analysis, technical report writing, strategic planning, and policy analysis.

PSO define publicly the means of measuring and reporting the achievement of progress towards the realization of its vision and accomplishing its mission.

PSO monitor closely the workload demands of the various organizational units in order to enable a proper review of workload demands and staffing criteria

177. A detailed list of specific tasks recommended for PSO to undertake is outlined in the Implementation Plan following in Figure 2.

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Implementation Plan Public Service Review Republic of Kiribati

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Task Dessription/Astion Required Responsibility Timefame StatusKommen t

2. Mission Statement

3 . GovernmentKitizens Contract

4. Use of Management Cadre 5 . Organization Nomenclature

to engage in public sector reform or public service and President maintenance PSO needs to Adopt a new mission statement. PSO, Cabinet, Draft statement proposed. Action required President

July-01 Draft prepared; included in Final Report

Review and consider proposed program outlined. PSO, Cabinet, President

July-01 Draft document and program outlined in Final Report

The Government should review its policy re: use Cabinet, of Cadres in technical positions. President program in technical positions. The Government should adopt a standard PSO, Cabinet, nomenclature for describing organization entities. President

ASAP Recommendation to abandon use of management cadre

July-01 Recommended terminology presented in Final Report

6. Organization Structure Completion of review of organization structure Cabinet,

7. Position Allocation The Government should adopt a position . PSO,Cabinet, ASAP Model presented for consideration. Key PSO staff was Model allocation model such as the PAM system President trained in its use.

8. Job Classification

June-01 Decision pending made in November 2000. President

proposed. Current classification system should be streamlined PSO, Cabinet, as recommended. Model plan should be reviewed President and considered for adoption and implementation.

ASAP Specific recommendations offered in Final report

9. Pay Plan A complete government-wide study should be PSO, Cabinet, conducted using the process outlined in Appendix President 5.

ASAP Proposed plan offered. PSO staff trained in use of plan.

48

Implementation Plan Public Service Review Republic of Kiribati

ADB TA NO. 3404-KIR

Task DescriptiodAction Required Responsibility Timeframe StatusKomment

Management System to the adoption of a performance management/measurement system

President

1 1. community PSO should adopt and execute a community PSO

PSO

PSO, Cabinet, processing citizen and government agency President complaints

14. Review of PSO The PSO should review and evaluate its decision- PSO decision making process making processes and establish a policy regarding

Awareness Program awareness program 12. New Employee A new employee orientation program should be Orientation initiated by PSO 13. Complaint Processing PSO should establish a system for receiving and

15. Workload demands

16. Operations Manual

17. StafFTraining and Development

same. PSO should undertake a "scientific review" of workload demands and offer recommendations to Cabinet for consideration in the next budget cycle.

PSO

The manual should be completed and distributed to all PSO staff Continued emphasis should be placed on management training and developing management skills: team building, problem solving, operations research, and the like.

PSO

PSO

ASAP Recommended plan outlined in the Final Report

ASAP

ASAP Plan outlined in Final Report

ASAP

August-11 Requirements for such a study discussed with PSO management. This activity may require outside assistance to complete.

July-01 A mock up version of the manual was developed in March 2001.

On-going

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