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Structural Reforms for Effective Public Administration
Presented By-ASM Nazmul Hasan
AHM Zannatul FerdousMasum Billah
THE CAIN PROJECT1
2
Public Administration
Public administration attempts to explain how decisions in government are made.
Administrating projects to carry out those decisions for Public.
Art of management as applied to the affairs of the state.
3
Public Administration Practices in a Country
Enacting a law. Making decisions. Maintaining peace and order. Processing of claims. Building roads and bridges. Setting standard and processes.
4
Public and Private Administration
Criteria Public Administration Private Administration
1. Relations to environment
subject to public scrutiny; public demand & expectations; political pressures.
Less exposed to public inspection; response to public guided by market dynamics.
2. Accountability Accountable to the public; transparency in transactions is expected
Management accountable to owners of firms/corporations.
3. Measure of performance
General public satisfaction.
Profit is bottomline.
4. Nature of goods & services
Almost open to all. Based on ones ability to pay.
5
Reforms
“Reform” means starting again after the improvement or amendment of what is wrong, corrupt, unsatisfactory, etc.
Reforms seen more frequent in countries that have been more severely affected by the crisis.
6
Reforms When fiscal and monetary policy room
very limited, structural reforms are the only way forward…
Sometime Reforms is for boosting competition in product markets, facilitating trade and enhancing the efficiency of services…
In developing countries, sometimes reform is a pre-condition by donor agencies…
7
Example of Reforms
Education sector reforms Financial sector reforms Labour market reforms Policy reforms Land reforms Public sector Reforms
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Change and Reform
9
Change and Reform Reform is planned or intentional where
Change can be planned or not planned. The word "Change" is a curious one. In
politics it is most often used in the context of "Time for a Change." It speaks to the periodic need to throw the rascals out.
“Reform” is like cleaning and tidying up a living room before a party.
10
Reform and Revolution
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Reform and Revolution
“Reform” means physically or logically form again i.e. re-form in a planned way.
“Revolution” is a fundamental change in power or organizational structures that takes place in a relatively short period of time.
The reform aim to increase the efficiency and effectiveness of public action, to reduce costs and put an end to the supposed power of bureaucracies.
Govt. Reforms
12
Latin American countries have had major reform especially with ‘Modernization of the state‘.
European Union was mandated to reform due to its vision & mission.
Former Soviet Bloc administrative reform went hand in hand with democratization and political reform.
Govt. Reforms … not so easy
13
Modernization of Public Services
14
Two
Phas
es: 1980’s
Government concentrated on
economic liberalization and on privatization of state owned industries
1990’sFocus on the
administrative reform of core state functions and
the building of state capacity
Survey conducted in 1999 found that during the last two decades:
40 % of the world's 123 countries had at least one major reform movement.
15 % had some public management reforms but no national level initiatives.
22 % of the world's largest countries had 2 or more reform movements.
Public Administration Reform
16
• MalaysiaAsia• FranceEurope• LiberiaAfrica• MexicoLatin America
17
18
Administrative Reforms Creation of a development administration Improvement of government's education
and training program Strengthening of professional competence
of the civil service Performance Appraisal Privatization Information Technology
19
French President Nicolas Sarkozy 20
Reviewing of Public Policies
Leadership Role
Modernization The Existing Public Policies
21
President Ellen Johnson Sirleaf 22
Reform in the executive authority Restructuring of the national security Participatory government Civil service reform Downsizing and rightsizing the civil service Judiciary reform Constitutional reform
23
President Felipe Calderon24
Good governance Rule of law transparency accountability small and effective bureaucracy Peoples' participation Citizen’s Charter Streamline bureaucracy Regulatory reform
25
Reforms in Neighboring Countries
26
Reforms in India
27
2nd Administrative Reforms Commission formed in 2005, recommended for- Strengthening of Financial Management
System Steps to ensure Effective Public
Administration at the State Level Local Self Govt. / Panchayati Citizen Centric Administration Promoting e-Governance Crisis Management and so on …
28
Reforms in Sri Lanka
Primary Education reforms Extending educational opportunity Improving the quality of education Developing practical and technical skill Education and training of teachers Management and resource provision
29
Reforms in Sri Lanka
Administrative Reforms 1979 - 2010 Several Institutions were setup Administrative Reform Committee - 1996 Implementation of work norms of govt. staff Formulation of job description for all grade post Code of conduct of public servants Performance and Aptitude appraisal system Setup Human Resource Department in public sector
30
Reforms in Sri Lanka
Constitutional Reforms Sri Lanka constitution on 4th Feb, 1948 Eighteenth amendment was done up to 2010 1988- Extension of immunity of President; increase of
number of Members to 225; validity of referendum;
appointment of Delimitation Commission for the division
of electoral districts into zones & proportional
representation.
31
Reforms in Sri Lanka
Constitutional Reforms … 1988- Make provision for Sinhala and Tamil
to be Languages of Administration and Legislation. 1993- A committee was appointed for recommendation
of constitutional amendments. 2001- Established independent commissions to
administer Police, Judiciary, Public Service & Elections.
32
Reforms in Sri Lanka
Financial Reform 1977- Introduction of open economic policies Banking industry improved significantly for this
financial reform. Political interference, corruption, bureaucratic
rigidities, political and social ideologies, ethnic issues,
financial illiteracy and many other factors have
affected the reform process in Sri Lanka.
33
Reforms in Nepal
34
Reforms in NepalSTRUCTURAL REFORM FOR EFFECTIVE PUBLIC ADMINISTRATION IN NEPAL
By Zannatul Ferdous,MPPG,5th batch
35
Reforms in Bangladesh
36
Reforms in Bangladesh
What is Civil Service?Civil service:
Services constituted under law. It has a number of positions or structure and
recruitment rules. It refers civil servants into well defined
groups. An operational unit of key personnel, around
which an expanded organization can be built.He / She is employed by state in civil
capacity whose remuneration is paid and wholly and directly out of moneys by voted by parliament.
Structural reform of civil service
37
What is Civil Service?
Features (UNDP): Merit based, neutral.Well structured, right sized and well paid.Accountable, professional and relatively corruption
free.Relatively autonomous, responsive and
representative.Well trained, performance oriented and relatively
open.
Structural reform of civil service
38
Classification of Govt. Servants
Govt . Servants
Class I
40,000 Posts
Class II Class III Class IV
Gazetted Official
29 BCS Cadre Officials (70%)
Others (30%)
Number of Ministries and Divisions: 61Number of Directorates and Departments: 345
Sanctioned post: 1,061,089Existing posts : 1042,978Vacant post: 18,111 (as of 2005)
39
In 1785, Civil service: Non-military staff. Civil service: Permanent post holders from temporary
posts holders in British regime. Instead used terms like ‘public servants’ or ‘government
servant’.
Evolution of Civil Service
40
There is no definition of Civil Service in the Public Servant Recruitment Rules, rather public servant or government service is defined.
For example, who are included in public servants is given in the Public Service (Retirement) Act 1974.
The term civil servant is used in conversation only.
Evolution of Civil Service
41
Name of the Commission/ Committee
Recommendations
Administrative Reorganization Committee, 1971
Unified civil service structure.Formation of a secretariat with 20 ministries and reestablishment of civil administration.
Administrative and Services Structure Reorganization Committee, 1972
A single classless grading structure covering all services into 10 grades. No reservation of any post for any cadre.Thana should be the basic unit of administration (At present district is the most important unit of field administration)
National Pay Commission, 1972
Recommended a national pay scale consisting of 10 grades. `Partially implemented and lasted for only 3 years.
Committees for reform
Name of the Committee/ Commission Recommendations
Pay and Services Commission, 1977
Creation of 28 services under 14 cadres.
Establishment of Senior Service Pool (SSP).
SSP system was abolished in 1989
Martial law Committee for Examining Organizational set up of Ministries/ Divisions/ Directories and other organizations, 1982
Reduction of size of the Govt.
Reduction of layers for decision making.
Delegation of administrative and financial power. Partially implemented, for example,Reduction of number of ministries from 36 to 19.
Reduction of subordinate offices from 243 to 181.
Committees for reform …
43
44
Committee for Administrative Reform and Reorganization, 1982
Upgrading of thanas into upazilas .
Upazila Parishad -the focal point of local admin.
Committees for reform …
Special Committee to review the structure of Senior Services Pool, 1985
Continuation of SSP as a cadre.
Entry to SSP at DS level through examinations by PSC.
Promotion in SSP on merit based.
Fixed tenure for secretaries
44
Council Committee on Senior Appointments and Services Structure, 1987
Abolition of the SSP.
Filling up positions of DS and JS by promotion on the basis of quota reservation for various cadres. SSP abolished on 1989.
Administrative Reorganization Committee, 1996
Reduction of ministries, departments and agencies.
Elimination of unnecessary units.
Separation of audit from accounts.
Establishment of secretariat for Supreme Court.
Reduction of size and role of the planning commission.
Committees for reform …
45
46
Local Govt. Commission, 1997 Strengthening Local Govt. institutions
Public Administration Reform Commission, 2000
70 short –term and 37 long term recommendations
Committees for reform …
46
Constitution (Article 133
President by his
authority
Parliament by formulation of
law
Rules and regulations for appointment and conditions of service
Methods for formulating recruitment rules
47
Public Service Commission
Public Service Commission
(First)
Public Service Commission
(Second)
In 1972 by President’s Order
1977
Bangladesh Public Service Commission
A quasi judicial body Works on Article 137 – 141 of the Constitution
PSC Starts recruitment in BCS in 1982
48
Recruitment was done by an executive order called Interim
Recruitment Rules 1972
Constitution came in operation in December 1972.
Recruitments were ad hoc and unsystematic.
In 1976 recruitment rules for appointment of superior position
were framed.
BCS Recruitment Rules, 1981
History of Govt. recruitments
49
The rules for creation of BCS cadres was framed in 1980
Bangladesh Civil Service Recruitment Rules 1981Recruitment procedure, probation period and conditions
for confirmatio
n of services
Elaborate recruitment rules in 1982
Conditions like age and syllabi were changeable since 1983.
Educational qualification: Second class Bachelor Degree & First division in SSC or HSC
Age limit: 21-25 years. Upper age limit relaxed for tribal, doctors and freedom fighters
Criteria for eligibility: age and
qualification
History of Govt. recruitments
50
Age limit of judicial
cadre was raised from
30 to 37
Conditions like age and syllabi were changeable since
1983. In1990, Recruitment of BCS (Police): 400: Compulsory subjects 600: Academic attainments
After 1992 recruitments were made on the basis of four test.
Written : 800Viva voce : 200 Psychological and medical examinations.
History of Govt. recruitments
51
52
1982: 1600 1984: 9001990:10001992: 1000, with psychological and medical
exams.At present: 1100 including viva voce
Change in Exam marks
History of Govt. recruitments
52
Period Highest age Relaxation class Relaxing age
CSP/EPCS 25 Schedule caste/ Buddhist/ Tribal/ Govt. Employee
28
BCS 72-91 27 Freedom fighters/ Tribe for doctors/ Judges/ General and technical education
30
BCS 91- 30 Freedom fighters, their children and grand children
32
Change in age service entry
53
Absence of regular recruitment procedure caused problemsRecruitment BCS Adminstratin Cadre Officers for Upazila Magistrate during second Martial law regime.
1983: 6501986: 4401988: 550
The following Govt. withdrew Upazila system. Problem in promotion to next tier, especially the next batches.
History of Govt. Recruitments
Highlighted event: In 1990, BCS Secretariat and BCS Administration was merged.
54
Tiers of Administrative system
Administrative
systemCentral level Field level
Ministries & Divisions
Agency Offices
Formulating policies, supervising departments
General Administration, delivary of public servics,
implementation of development program in divisional, district, thana
/upazila levels
55
Minister
Secretary
Political head of the ministry.
In-charge of a ministry.
Administrative head of the division / ministry.
Adviser to minister in policy formulation.
Few ministries more than one divisions.
Addl. SecretaryIn absence of Secretary, she/he looks after the responsibilities of SecretaryHead of wing
Hierarchy of Central Administration
56
57
Joint SecretaryHead of wing.
Can submit the cases directly to minister. In practice, Joint Secretary first consults Secretary.
Deputy Secretary Head of branch.
Senior Assistant/ Assistant Secretary Head of section, Initiates file.
Hierarchy of Central Administration
57
Commissioner
Addl. Commissioner
Deputy Commissioner
Addl. Deputy Commissioner
UNO
Assistant Commissioner
Field Administration
Division
District
Upazila
58
Change in number of ministriesYear Number of
MinistriesComment
1972 21
1975 26
1975 13 After proclamation of 4th Amendment
1977 33
1978 24
1980 30
1982 19 Following declaration of Martial Law
1991 33 After democratic rule and parliamentary system was restored
1995 35
2001 36
2007
Current 38
What is quota system?The common logic - eliminate discrimination against some section of the society.
Something reserved for some backward section of the country to uphold their representation in education, business and service or policy making process.
Quota system
60
Year Merit FF Women Affected Women #
Tribal District Total
1972
20 30 0 10 0 40 100
1976
40 30 10 10 0 10 100
1985
45 30 10 0 5 10 100
1997
45 30 10 0 5 10 100
Change of quota over the years
61
Types of quota For class I and Class II officers (%)
For class III and Class IV officers (%)
Merit 45 NoOrphan and retarded No 10Freedom fighters 30 30Women 10 15Tribal 5 5Ansar and VDP (Village Defence Force)
No 10
General/ District 10 30Total 100 100
Present Quota distribution
62
Name of the post Quota reserved for Administration cadre
Other Cadres
Deputy Secretary 75% 25%
Joint Secretary 70% 30%
Addl. Secretary 70% 30%
Another example
A committee Superior selection Board (SSB)
headed by Cabinet Secretary
63
Exceptions: Ministry of Foreign Affairs Ministry of Law, Justices and Parliamentary Affairs
Appointment: Applicable for posts of Deputy Secretary and above.
Clusters of ministries
General cluster Economic cluster Socio-Physical Infrastructure cluster
Recommendation by PARC
64
Senior Management Pool (SMP)
A Senior Management Pool (SMP) for Secretariat. It consists of officers from DS to Secretary. Competitive examination at DS level by PSC for SMP.Officers in senior scale with at least 8 years tenure from all cadres can participate in the examination.
Recommendation by PARC
Senior Management Pool (SMP)
65
66
Cadre officers will opt for clusters according to their preferences.Officers upto grade III and support personnel rotate within a cluster. 10% of the total posts can be filled up officers of ministries from other cluster.
Senior Management Pool (SMP)
Recommendation by PARC
66
Secretary posts : upto 15% Deputy Secretary postsand above : upto 10%
Senior Management Pool (SMP)-Lateral entry
Competitors: 1. Officers from two steps below the posts2. Qualified people from private sector
Recommendation by PARC
67
The competent incumbents in absence of vacancies will get selection grade /time-scale.
Three Public Service Commissions instead of the existing one.
General Services Technical Services Education Service
# Local Govt. Service Commission- Local Govt. bodies
Recommendation by PARC
68
Four divisions would be merged. PM Office- PM’s Secretariat,
Armed Forces DivisionPrimary and Mass Education Division
Nos. of ministries would be fixed 25.
Recommendation by PARC
69
70
Departments to be abolished:1. Bangladesh Bureau of Education Information and Statistics (BANBEIS)2. Supply and Inspection Directorate 3. Directorate of Textiles 4. Directorate of Dhaka Mosquito Control 5. Department of Agriculture Marketing and Grading 6. Directorate of Complaints
Recommendation by PARC
70
Creation of two new organizations: 1. Supreme Court Secretariat
2. Office of the Ombudsman.
Change in manpower structure in 50 offices.Creation of new posts : 1759 of class I
2309 class IIReduction of posts : 13176 of class III
16798. of class IV.
Result: Reduction of 25906 posts and save crore taka
Reorganization of Planning CommissionStrengthening of planning cells of the ministries.
Recommendation by PARC
71
Pre-colonial period: Self-governing Panchayet system existed. The scripture Rig Veda refer the existence of such system.
Colonial period
Bengal Village Chowkidar Act in 1870 with Panchayet system.Collected levy and chowkidari tax. Tenure: Four years
The Bengal Municipal Act, 1884 for urban local government of Bengal, Orissa and Assam.
Local Government
72
The Bengal Self-Government Act, 1885
Colonial period
The District Board
The Local Board (for sub-division)
The Union Board
Members elected by a restricted electorate Abolished in 1936
Members elected by a restricted electorate Had control over local police.
Performed three types of functions
Principal Unit of Local Government.
Had the real authority.
Local Government
73
Regulatory functions
Development functions
Three functions of Union Board
Local Government
Normal municipal functions
Sanitation, water supply, maintenance of roads and drains
Regulatory functions
Control over the construction of
buildings
Development functions
Promotion of cottage industries, and establishment of primary schools
or libraries
74
75
Pakistan period
Union Council
Thana Council
Union Council
Thana Council
District Council Divisional Council
Comilla Experiment on Rural DevelopmentBasic Democracies Order, 1959
Local-Self Government Act 1885 was abolished before.
Local Government
75
Head: MayorMember: Councilor
Bangladesh periodLocal Govt.
Zila Parishad (District)- 61
Upazila Parishad (Sub-district)-488
Union Parishad- 4550
3 Hill Districts Parishads
Urban Councils
City Corporation-11 Pouroshava-311
Dhaka-2, Chittagong, Rajshahi, Khulna, Barisal, Sylhet, Gazipur, Naraynaganj, Rangpur, Comilla76
Bangladesh periodUnion Parishad Union Panchayat Union Parishad1972 1973
Paurashava Paurashava Act, 1973Amended couple of times
UP is the smallest local government unit. Consists of 9 wards.A Chairman, 9 general members and 3 women members.4527 Union Parishads at presentLast election in 2011
Local Government
77
Upazila Parishad (UZP)
Committee for Administrative Reform, and Reorganization (CARR)NATIONAL IMPLEMENTATION COMMITTEE FOR ADMINISTRATIVE REFORM/REORGANIZATION- NICARR played role
1991- Upazila system abolished.
Re-enacted by Upazila Parishad Act 1998Each thana area was declared a Upazila
Latest : Upazila Parishad Act of 2009MP is adviserUNO is the Secretary of the Upazila Parishad
The Local Government (Thana Parishad and Thana Administration Reorganization) Ordinance, 1982 introduced Upazila system Amended on 1983Upazila Magistrate were appointed.
Local Government
78
Zila (district) Parishads: The largest rural authorities61 Zila Parishads (3 Hill Districts Parishads )Chairmen are appointed by Govt.Composition: 1 chairman + 15 General members+ 5 reserved women.
Legal basis: Local Government (Zila Parishad) Act, 1988
Local Government
79
Recommendations by PARC
1. Functions, personnel and budget of 7 departments may be transferred to Zila Parishads (ZP) 2. Those of 9 departments to Upazila Parishad (UZP). 3. The official will be deputed in the Parishads. 4. A DC/ADC level Officer to Zila Parishad as Chief Officer5. Coordination of Govt. actvities by ZP and UZP in their respective jurisdictions.6. Chairmen be the principal-coordinators in the Parishads.
Local Government
Recommendation by PARC
80
Abolition: Division level officesCentral offices of LGED and PHED (and
transferred to ZP and UZP)
Local Govt. Service Commission for Local Govt. bodies
MP’s participation in the planning in Upazila development activities.
Introduction of Zila Planning Unit.
Zila Planning Unit bridge between national and local planning
Recommendation by PARC
81
8282
8383